World Bank Document · 2016. 8. 26. · APKG Alai Penilaian Kemampuan Guru(Teacher Performance Assessment Instrument) BAKN Badan Administrasi Kepegawaian Negara ... (2) to place those

Document of

The World Bank

FOR OFFICIAL USE ONLY

Report No: 20548

IMPLEMENTATION COMPLETION REPORT(34960; 3496A; 3496S)

ON A

LOAN

IN THE AMOUNT OF US $36.6 MILLION

TO THE REPUBLIC OF INDONESIA

FOR THE PRIMARY SCHOOL TEACHER DEVELOPMENT PROJECT

JUNE 23, 2000

Human Development Sector UnitEast Asia and Pacific Region

This document has a restricted distribution and may be used by recipients only in theperformance of their official duties. Its contents may not otherwise be disclosed withoutWorld Bank authorization.

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CURRENCY EQUIVALENTS

(Exc.hange Rate Effective June 2000)

Currency Unit = Rupiah (Rp)I Rp = US$ 0.0001

US$ I = Rp 8540

FISCAL YEARApril I March 31

ABBREVIATIONS AND ACRONYMS

APKG Alai Penilaian Kemampuan Guru(Teacher Performance Assessment Instrument)BAKN Badan Administrasi Kepegawaian Negara (Civil Service Agency)BAPPENAS Badan Perencanaan Pembangunan Nasional (National Development Planning Agency)CAR Classroom Action ResearchCPIU Central Project Implementation UnitDATI I Daerah Tingkat l(Provincial Level Govemment)DATI 11 Daerah Tingkat 11 (Kabupaten/Kotamadya or District Level Government)DGHE Directorate General of Higher EducationDGPSE Director General of Primary and Secondary EducationD2 Five-semester post-Secondary Diploma CourseDIP Daftar Isian Proyek (Project Budget Allocation)FKIP Fakulias kegtrtan dan llntu pendidikan (Faculty of Education and Teacher Training)FPP Forum Pengarah Pusat (Central Steering Forum)Guru WiyataBakii Honorary teachers appointed by local authorities without civil servant statusHarian Day staff work for Joint Secretariat and the Central Steering ForumICR Implementation Completion ReportIKIP Institut Kegutruan dan lilnu Pendidikan (Institute of Teacher Training and Education)JGF Japanese Grant FundsLPIU Local Project Implementation UnitLPTK Lembaga Pendidikan Tenaga Kependidikan (Teacher Education Institute)Menkowasbang-PAN Alenteri Koordinator Pengawasan Pembangunan dan Pendayagunaan Aparatur Negara

(State Ministry for the Coordination of State Apparatus and Civil Service Agency)MOEC Ministry of Education and CultureMOF Ministry of FinanceMOHA Ministry of Home AffairsMORA Ministry of Religious AffairsNOL No Objection lettersPemda Penmerintah Daerah (Local Govemment)Pendidikan Kedinasan Formal training for staff candidate

Vice President: Mr. Jemal-ud-din KassumCountry Director: Mr. Mark Baird

Sector Director: Mr. Alan RubyTask Team Leader: Ms. Clementina Acedo

FOR OFFICIAL USE ONLY

PEQIP Primary Education Quality Improvement ProjectPGSD Pendidikan Guru Sekolah Dasar (Primary School Teacher Education Program)

PGSM Pendidikan Guru Sekolah Menengah (Secondary Teacher Education Program

RMU Research Management UnitRQCU Research Quality Control UnitRSI Resident Staff in Indonesia - The World BankS I Strata I (First degree, or undergraduate degree program)S2 Strata 2 (Second degree, or master's level program)SAR Staff Appraisal ReportSGO Sekolah Guru Olah Raga (Four-year Primary Sport Teacher Trainine SchoollSMP Sekilah Menengah Pertama (Three-year Junior Secondary School)

SPG Sekolah pendidikan Guru (Four-year Primary Classroom Teacher Training School)

Tim Pelaksana A task force established in order to undertake day-to-day staff work for Joint Secretariatand the Central Steering Forum

SPP-TK Sistem Pengadaan dan Pembinaan Tenaga Kependidikan(System for ttie Provision and

Development of Education Manpower, the majority of whom are teachers)

UPP Unit Pengelola Program(Program Implementation Unit, former SPG/SGO units that areintegrated into the LPTK system

This document has a restricted distribution and may be used by recipients only in theperformance of their official duties. Its contents may not be otherwise disclosed without

World Bank authorization.

Implementation Completion Report- Republic of Indonesia

Primary School Teacher Development Project (Ln. 3496-IND)

CONTENTS

Page No.1. Project Data 12. Principal Performance Ratings I3. Assessment of Development Objective and Design, and of Quality at Entry 14. Achievement of Objective and Outputs 45. Major Factors Affecting Implementation and Outcome 12

6. Sustainability 137. Bank and Borrower Performance 14

8. Lessons Learned 159. Partner Comments 1710. Additional Information 17Annex 1. Key Performance Indicators/Log Frame Matrix 18Annex 2. Project Costs and Financing 21Annex 3. Economic Costs and Benefits 23Annex 4. Bank Inputs 24Annex 5. Ratings for Achievement of Objectives/Outputs of Components 26Annex 6. Ratings of Bank and Borrower Performance 27Annex 7. List of Supporting Documents 28

3 Attachments in Annex 7

Project ID: P003969 Project Name: ID-PRIMARY SCHOOL TEACHERS

Team Leader: Clementina Acedo TL Unit: HDNED

ICR Type: Core ICR Report Date: June 23, 2000

1. Project Data

Name: ID-PRIMARY SCHOOL TEACHERS L/C/TF Number: 34960; 3496A; 3496S

Country/Department: INDONESIA Region: East Asia and PacificRegion

Sector/subsector: EP - Primary Education

KEY DATESOriginal Revised/Actual

PCD: 04/25/91 Effective: 09/22/92 09/22/92

Appraisal: 12/26/91 MTR: 04/19/96 04/19/96

Approval: 06/24/92 Closing: 12/31/97 06/30/99

Borrower/lmplementing Agency: GOl/DGHEOther Partners:

STAFF Current At Appraisal

Vice President: Jemal-ud-din Kassum Russell Cheetham

Country Manager: Mark Baird Marianne Haug

Sector Manager: Alan Ruby Clifford Gilpin

Team Leader at ICR: Clementina AcedoICR Primary Author. Clementina Acedo

2. Principal Performance Ratings

(HS=Highly Satisfactory, S=Satisfactory, U=Unsatisfactory, HL=Highly Likely, L=Likely, UN=Unlikely, HUN=Highly

Unlikely, HU=Highly Unsatisfactory, H=High, SU=Substantial, M=Modest, N=Negligible)

Outcome: S

Sustainability: L

Institutional Development Impact: SU

Bank Performance: S

Borrower Performance: S

QAG (if available) ICRQuality at Entry: S

Project at Risk at Any Time: Yes

3. Assessment of Development Objective and Design, and of Quality at Entry

3.1 Original Objective:The overall objectives of the project were to produce an adequate number of well-trained primary school

teachers appropriately distributed. Teachers would be trained through a new tertiary level pre-service

teacher diploma program. Specific objectives were:

(a) strengthen the capacity of managers and teacher educators to provide quality primary teacher education

and build domestic capacity to train primary teacher educators;

(b) strengthen primary teacher education programs (pre-service and in-service);(c) establish a coordinated system for teacher supply and deployment;(d) build capacity for research and development in primary education;(e) strengthen management of primary teacher education programs.

The objectives were ambitious but clear and supported an important Government policy. In 1990,responsibility for the pre-service training of primary teachers was transferred from the Directorate Generalof Primary and Secondary Education to the Directorate General of Higher Education. Indonesia's tertiarylevel Teacher Education Institutes (LPTKs--Len7baga Pendidikan Tenaga Kependidikan) were faced with

a major challenge. Until the transfer, the LPTK had been responsible solely for the preparation ofsecondary teachers, so little expertise in the methods of primary teacher education was available. The firstmain objective of the project was to support this policy change by developing primary teacher educatorsand strengthening primary teacher education programs.

The second overall objective, "to produce teachers appropriate in numbers and distribution," was more illdefined. Whereas in the early 1970s there were severe shortages of primary school teachers, by the late1980s the country's capacity to supply primary school teachers had outstripped demand. The final years ofthe old secondary-level Sekolah Pendidikan Guru (SPG) teacher education program during the late 1980sproduced approximately 70,000 new primary teacher graduates each year. However, calculations carriedout during project preparation in 1990-91 indicated that the number of new teachers being recruited into thecivil service each year was no more than about 10-12% of this figure, and that recruitment rates wereunlikely to rise substantially in the short or the medium term. The median age of the teaching force was 34,and less than 2% were reaching retirement age each year. Although numerous schools were short ofteachers, the national primary pupil: teacher ratio was generous 23:1. The critical issue at the time ofpreparation was--and still is today-- the distribution of teachers, rather than overall teacher numbers.

In the light of these data, recruitment to the new tertiary-level D-2 pre-service program was restricteddrastically. The first intake, in 1990-91, amounted only to 7,000 students, while in subsequent cohortsthere were further reductions, to only 5,000 by 1995-96. Initially, this strategy seemed to be succeeding: asmany as 95% of the first group of D-2 graduates were recruited as primary teachers. But in the followingyears, the absorption rate dropped steadily, to about 70% (in the 1995-96 graduation cohort), then to 56%(1996-97), and finally to only 27% (1997-98). (See Figure 1). The main reason was that vacancies wereincreasingly being filled by graduates from the earlier SPG program who had been working as voluntaryteachers (guru honorer, or widya bakti) in the primary schools. Working as voluntary teachers is widelyperceived as a form of queuing, through which unemployed teacher education graduates acquire an implicitright to receive preferential consideration when new teachers are being recruited.

Therefore, from the start, there was a gap between the project objective and what the project was going tobe able to accomplish in termns of absorption of graduates, given the different government agencies thatdealt with teacher placement and the overflow of teachers in the field. This issue should have been dealtwith in preparation and initial implementation stages.

3.2 Revised Objective:The Project Development Objectives (PDOs) did not change throughout the project and remained: (1) toproduce well-trained primary school teachers, through a new tertiary diploma course, in numbers matchingestimated needs; and (2) to place those teachers were needed. However, the recruitment scheme into theD-11 program was revised and this revision represented an improvement in the project design. Clearly theemerging situation, described in the previous section, placed the new D-11 program --and the Primary

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Teacher Education Project through which it was being developed-- in considerable jeopardy. If most D-II

graduates were to remain unemployed, there was obviously little point in devoting substantial resources to

strengthening the quality of the training.hey received.

In response to this challenge, the project team, working together with the LPTKs (Teacher EducationInstitutions) and the local PEMDA (Home Affairs) offices, devised a targeted teacher trainee recruitment

scheme. In the mid-termn review of 1996, the GOI and the Bank review mission agreed on a re-direction of

project implementation, focusing on quality of pre-service training as well as following a pro-active

strategy for maximum graduate absorption through targeted recruitment (see section 3.4).

3.3 Original Components:To achieve the project development objectives, the project provided relevant civil works, equipment,

fellowships, technical assistance, staff development, grants, learning materials and operational support for

a wide array of purposes reflected in the following components:

1. Developing primary teacher educators (estimated cost: US$28.2 m). The staff development componentwas designed to: (a) increase the knowledge and teaching skills of PGSD lectures; (b) strengthen the

capacity of in-service program developers and managers; (c) build domestic capacity to train primaryteacher educators; (d) improve the evaluation and monitoring skills of supervising teachers; (e) strengthenPGSD management skills; and (f) provide trained library technicians for PGSD. To achieve these

objectives, the original project planned to support staff development (non-degree) programs and degreeprograms. The degree programs included: the in-country second-SI degree program; masters-level S2programs, both in-country and overseas; and doctoral-level S3 programs, also both in-country and

overseas.

2. Strengthening primary teacher education programs (estimated cost: US$15.6 m) by: (a) improving their

curricula; (b) developing effective teaching assessment strategies; and (c) providing appropriate field-testedlearning materials. This component would finance task force activities, workshops, writing andfield-testing curricular materials, collecting, translating and developing supplementary materials, provisionof equipment, library materials, and facilities. Facilities included dormitories for up to 3,200 students.

Technical assistance included, international and national specialists in curriculum development,learning-teaching materials development, and curriculum evaluation. In addition, domestic specialists were

to support procurement of laboratory equipment and implementation of civil works.

3. Establishing a coordinated system for teacher supply and distribution (estimated cost: US$6.4 m) to

assure that: (a) new candidates were recruited in numbers and locations consistent with local needs, (b)

teacher education graduates were made aware of vacancies. The system would also (a) develop andappropriate formula for determining the number of teachers needed in schools of various sizes, (b)

introduce an information system for tracking changes in teacher distribution, (c) target recruitment of

teachers training candidates from teacher shortage areas, (d) provide scholarships for needy candidatesfrom target areas, and (e) establish cooperative efforts between DGHE and related agencies to assureappropriate teaching jobs for PGSD graduates.

4. Building research and development capacity (estimated cost: US$2.1 m). Specific objectives were (a)

create a rational basis for policy making in primary teacher education and distribution in Indonesia, (b)promote better understanding among LPTK lectures of the real world problems and conditions of primary

school teachers as means for improving their courses, (c) draw university lectures into action-researchpartnerships with primary school teachers in order to improve classroom teaching. Three major activities

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were designed for these purposes: (1) large scale policy studies, at the national level but contracted to localinstitutions; (2) small grants program for LPTK research teams; (3) action-oriented research studiesconducted by LPTK academic staff in Qollaboration with their primary school teachers counterparts.

5. Strengthening the primarv teacher education system (estimated cost: US$1.8 m). The objective of thiscomponent was to strengthen management structures and procedures both at the central (DGHE) level, andat the campus (LPTK) levels. At the central level, creating a Sub-Directorate for Teacher Education withinDGHE. In addition, the component would strengthen ties between: (a) pre-service and in-service teachereducation, and (b) the D2 training program and the SPP/CBSA activities supported by PEQIP.

3.4 Revised Components:The revised targeted recruitment scheme, which was introduced as the result of the mid-term review, hadthe following features: (a) recruitment to the D2 program was restricted to graduates from old SPGprogram who were working as guru honorer in the primary schools, (b) recruitment was carried outcollaboratively by Local Government (Pemda) and LPTK teams, (c) recruits were selected from areas ofmost severe teacher shortages, (d) numbers of new recruits were severely restricted, based on estimates ofnumbers of civil service vacancies likely to be available two and a half years after enrollment, (e) allrecruits received project-funding of a bursary amount of Rp 200,000 per month. Earlier in the project only20% of the recruits received an amount of Rp 65,000 per semester. Finally, recruits were given anundertaking that upon graduation, they would have priority for appointment as civil servants, and would beposted as teachers back in the schools were they had worked as guru honorer.

3.5 Qltalilt at Entry:N/A

4. Achievement of Objective and Outputs

4. 1 Otitcome/achievement of objective:The first part of the general objective of the project was accomplished. The project supported theestablishment of a pre-service system of primary teacher education at the tertiary level in a successful wayand succeeded in developing primary teacher educators and in establishing a D2 curriculum of primaryteacher education for the whole country. Therefore, better prepared primary teachers were produced by thesystem.

However, the second part of the objective, "in appropriate numbers and distribution" was not achieved inthe initial phases of implementation. Well-trained teachers were produced who did not find placement for4-5 years. The system could not absorb the newly trained teachers, since there was a queue of voluntaryteachers who also sought civil service positions. The agencies involved initially lacked coordination.During the mid term review of the project, the mission working with their Indonesian counterparts,determined that the solution to the problem was out of the reach of the project unless the agencies involvedwould redirect their recruitment policy and incorporate the local government in the decision process.Therefore, at mid term, the implementation design was modified to allow that voluntary teachers frompoorer and remote areas could be recruited into the D2 program, with scholarships. Also they werepromised that upon graduation they would have priority recruitment into permanent teaching positions,preferably in the places where they were originally teaching.

The targeted recruitment scheme thus, not only improved the results of the project by upgrading the skillsof teachers that were in the field, but also allowed for a more rational placement policy, in which new civilservants would be placed as teachers in their own communities. Since the targeted recruitment scheme was

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conducted by the local government, it also contributed to the creation of an incipient institutionalframework for teacher management and deployment at the local level, in a system that used to be extremelycentralized.

Figure 1.

Recruits, graduates, placement

7,000

6,00C

5,000

42000

2.000

4,000 -~rdae

200

1990-91 1991-92 1992-93 1993-94 1994-95 1995-96 1996-97 1997-98 1998-99 1990-00

4 2 Ozutputs by components.1. Developina Primary Teacher Educators.The main objectives and targets of this component (as set out in SAR) were fully accomplished. Theproject increased the (SAR) target of the number of trainees for in-country staff development andsucceeded in its results. The modifications for overseas staff development programs showed soundadaptation as better understanding of staff development needs was achieved, partly through preparatoryoverseas exploratory visits with faculty members in partner institutions in the USA, Australia and the UK.The Borrower's ICR provides details of the extent to which the quantitative performance indicators wereachieved. The results are impressive.

1.1. The second (SI) degree program. This second bachelor degree was designed as a staff retrainingprogram for staff of the teacher training implementing units (UPPs--Unit Pengelola Program). These staffhad originally been tutors in the old teacher training institutions (SPG/SGO), and their formal academicqualifications were inappropriate for the new tertiary-level D2 program. These in-country second SIprograms were offered in four IKIPS, each program focusing on different specialties: mathematics andscience education (82 graduates), science and social studies education (143 graduates), language, arts andmathematics education (148 graduates), mathematics and science education (91 graduates). This was thelargest staff development program, although the number of participants represented only 66 percent of thetarget.

1.2. In-country masters (S2) programs. The project put in place S2 masters programs in 5 IKIPs(Institutes of teacher Training and Education) with specialization in the following primary education areas:language arts education (19), mathematics education (I9), social studies education (20) science education(19) and early childhood development (22). The SAR target was accomplished by 99 percent. After

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completion of the project these programs continue to operate and some offer scholarships. One importantperformance indicator which could have been included from the start of the project would have been thepercentage of teacher educators from UWP that completed a S2 program. However, from field workexperience, we detected that in some provinces 50 percent of the UPP teacher educators were completingthe S2 programs (mostly without project funding).

1.3. Masters level (S2) overseas degree programs. These programs were run at 6 Universities; three inthe USA, two in Australia and one in the UK. They were of two kinds: (a) regular masters programsoffered by the host institution, (b) customized masters programs, tailored to meet the specific learningneeds of the Indonesian participants. The target was achieved by 97 percent (135 participated and 132graduated successfully and returned to their home institutions).

1.4. Overseas doctoral (S3) programs. Twenty-four students took part in overseas doctoral programs. Ofthese, 17 have already graduated, and a further three were expected to graduate by the end of 1999. Thetarget is expected to be achieved by 83 percent.

1.5. Non-degree programs. Teacher educators from LPTKs who have participated in the masters-levelstaff development programs (overseas and in-country) have run a variety of short non-degree programs,mainly for UPP staff. These programs included: (a) training in the use of the Teacher PerformanceAssessment Instrument (APKG) (643 participants), (b) training of trainers in the use of the APKGinstrument (2 1 participants), (c) training of laboratory technicians (156 participants), (d) training ofinternet users (46 participants).

1.6. Benefits and concerns from the staff development programs:1) Benefits. The participants became familiar with new ways of thinking, engaged in current debates ineducation, improved their teaching skills, developed a comparative perspective of their work, accessedmeans of information, and observed various pedagogical styles and strategies. There was also animprovement of D2 and S2 curricula.

2) Concerns. 2.1) UPP faculty members benefited from the masters-level programs less than they shouldhave, considering that they are the ones who are committed full-time to the D2 primary teacher educationprograms. In the UPPs visited, less than one third of the teaching staff have completed an in-countrymasters degree. Most UPP faculty members (450) completed a second bachelor degree (S 1) during theproject. However, after completion of this degree, the time available for undertaking masters programs wasvery limited. For those wishing to pursue masters degrees overseas, lack of competency in English was afurther barrier. 2.2) Virtually all the recruits to the international masters and doctorate programs camefrom among LPTK faculty members rather than from UPPs. This was due to initial preparation andlanguage requirements. The extent to which these new masters graduates were involved in the D2 primaryteacher education programs on their return from overseas varied considerably. Some took no part in theD2 programs and others were only peripherally involved. Project Performance indicators do not measurethe extent to which the new masters graduates were involved in the D2 primary teacher education program.

2) Strengthenine Primary Teacher Education Programs.Workshops for the development of the D2 and S2 (masters) curricula were held at The University ofHouston, Texas, and at the Ohio State University, between November 1993 and February 1994. Thisworkshops brought together teacher educators from Indonesia and faculty members from all the six partneruniversities --including those in Australia and the UK. The draft curricula developed during theseworkshops were further revised in Indonesia, before official release as the D2 Pre-service PrimaryTeacher's Curriculum (1995), and the S2 Masters level Teacher Education Curriculum.

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2.1. The D2 Pre-service Primary Teacher's Curriculum. The D2 curriculum extends over five semesters(two and one half years). It is made up-of a total of 78 credit unit points (SKS), including 8 in basicgeneral courses (Pancasila, Religion, Citizenship); 16 in general education courses (educationalfoundations, class management, evaluation, guidance, teaching and learning strategies); 47 in the subjectsof the primary curriculum; and 5 in teaching practice (PPL). The new curriculum has a number ofinnovative features, which distinguish it sharply from its predecessor and represent marked improvements.They include the following:

2.1.1. Subject content. In the subject content courses, greater emphasis is given to mastery of the materialthe trainee plans to teach in the primary school. In mathematics, for example, students revise the conceptsof place value, fractions and decimals, and number operations. The amount of time devoted to the study ofmore advanced topics, -especially topics which students do not meet until the senior secondary or tertiarylevels- has been considerably reduced.

2.1.2. Subject-specific pedagogy. Equally important, subject-specific pedagogy courses, which linkunderstanding of the concepts of each subject with skills in the methods of teaching this subjects in theclassroom, have been introduced. In the previous curriculum, this essential bridge was weakly developed.

2.1.3. Practical teaching skills. Similarly, greater importance is now attached to the acquisition ofpractical teaching skills. Teaching practice begins in semester Ill, during which trainees take part insimulated teaching, as an integral component of most courses. In semester IV, the focus moves out of thetraining institution into the primary schools, where trainees observe lessons on a regular basis. Semester Vis entirely devoted to school-based teaching practice.

The trainees, divided into small groups, are attached to designated model schools --usually within easyreach of the campus. In the model schools they rotate among the six grade levels, spending a minimum oftwo weeks at each level, and teaching one lesson each day. They are supervised by class teachers from themodel school -gtru pemandit- and receive regular visits from a TEI tutor -dozen pembinmbing.

In the model schools visited, principals and guru pemandu were unanimous in their view that the currentarrangements for student teaching practice are much more effective than those they replaced. They singledout particularly, the introduction of a systematic scheme for assessing teaching practice (Alat PenilianKernampuan Guiru, or APKG) as a major step forward.

Dormitories were built on each of the LPTK campuses, close to the UPP units. The dormitories werereasonably built and occupied. In most cases, life in the dormitories added interesting peer life and fruitfulinteraction among the teacher trainees.

2.2. Curriculum implementation issues:2.2.1. Experiential knowledge of D2 teacher educators. The project made provisions for teacher educatorsto spend time in the schools acquiring classroom experience. However, from the information gatheredduring the ICR Mission, it appears that the time devoted to actual hands-on teaching was generally limited--in some cases, to no more than one or two 40- minute periods.

2.2.2. Teaching practice. The only time D2 trainees practice supervised teaching in a real classroom isduring the fifth and final semester of the program. The possibilities of introducing classroom-basedteaching practice earlier in the D2 curriculum sequence --before the subject-specific pedagogy courses havebeen completed-- should have been explored during supervision.

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3. Establishins- a coordinated system for teacher supply and distribution3.1. Targeted recruitment. This scheme improved the employment prospects of D2 graduates andguaranteed that teachers would be placed in areas where they were most needed. One cohort has completedD2 training since targeted recruitment started. These students graduated in 1999, and data indicates that80% have been appointed as permanent teachers with civil service status that same year. During theMission, we discussed this scheme with teacher trainers, primary teachers and supervisors. Withoutexceptions, all were unanimous in their view that the scheme has brought substantial benefits, such as: 1)Targeted recruits entered the D2 program more committed to following a career in primary teaching,because the period spent in voluntary teaching acts as a filtering mechanism; 2) the promise of preferentialtreatment to the civil service and a teaching post after graduation further enhanced motivation; and 3) theybring classroom experience especially in the applied components of the D2 course and, they are moreeffective in classroom management and instructional techniques than students without prior teachingexperience.

3.2. Scholarship support. It was provided by the project for all students under the targeted recruitmentscheme (1996-97 and 1997-98). But the two successor cohorts (1998-99 and 1999-2000) have received noproject funded scholarship support. However, the teacher trainees enrolled claim that they would continuetheir D2 program in order to become civil servants. Most maintain a part-time job while studying.

3.3. Inter-agency coordination for more equitable recruitment, appointment and deployment:Recruitment was carried out collaboratively by Local Government (Pemda) and LPTK teams. The LocalGovernment detects the areas of shortages. Achievements are: 1) the creation of the Central SteeringForum to address the coordination of recruitment, appointment and deployment of elementary schoolteachers; 2) the Joint Secretariat to raise issues by the concerned agencies and facilitate decision makingprocess.

3.4. Concerns: Response to the ending of the project-funded scholarship program and the targetedrecruitment scheme has varied sharply among the six provinces visited during the Mission. Therefore acollaborative review of the effectiveness and sustainability of the targeted D2 recruitment program shouldbe carried out by the LPTK and Pemda teams. In addition, the provincial-level review of targetedrecruitment should include an analysis of its effects on primary teacher distribution. New teacher traineerecruitment plans, targeting the needs of the teacher shortage areas, should be developed. Finally, aformula based on pupil numbers for calculating teacher needs should be developed to replace the existingclass-based formula. Some of these issues were addressed during the project but not enough progress wasmade mostly for institutional reasons. This component has not had enough impact on policy making. Theinstitutional structure generated by the project however, can be used at the local level to develop a bettermanagement of teacher distribution and appointment.

4. Buildine research and development capacitv4.1. Large-scale national policy studies. Responsibility for managing the large-scale national policystudies was developed at IKIP Yogyakarta, where a research management unit was established. A researchQuality Control Unit (RQCU) was also established at IKIP Yogyakarta. The RQCU was composed ofsenior researchers and specialists from a variety of institutions (IKIPs Bandung Yogyakarta, Malang;Gajah Mada University, the University of Indonesia, and a representative of DGHE). Its mainresponsibility was to ensure the quality of the planning, implementation, and evaluation ofProject-supported research and development activities.

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Seven large-scale studies were contracted to tertiary institutions, as follows:a. Primary School Effectiveness (IKIP Yogyakarta)b. Effectiveness of the D2 Primary Teacber Education Program (IKIP Bandung)c. Systems for In-Service Training in Remote Areas (Open University)d. Primary teacher Education Management (Univ. Sebelas Maret, Central Java)e. Primary Teacher Incentivesf. Primary Teacher Appointment and Placementg. Demographic Change and Primary Teacher Distribution.These studies were completed,, and research reports prepared. In several cases, summary reports were alsopublished in the Primary Education Research Journal. However, real dissemination outside the academicenvironment and impact in policy-making for primary teacher education and primary teacher supply inIndonesia was very limited.

4.2. Small policy research studies. The main responsibility for the small policy research studies and actionresearch studies was carried by individuals and groups of individuals, located in various LPTKs offeringthe D2 primary teacher education program. The small-scale policy oriented studies raised relevant topicssuch as: "Improving the oral communication skills of elementary teachers," and "Modules for small groupsof elementary school pupils in isolated villages." In some cases they involved the community and the localauthority for continuation of the programs developed, in others they were mere academic exercises. Theexchange of ideas enriched the research culture of the institution as a whole. Research findings weredisseminated through centrally organized seminars, and through publication in journals linked to the PGSDprogram.

Quantitative evidence of the achievement of the research component of the project can be found in Tables9.1 to 9.3 of the Borrower's ICR. Seven large-scale policy studies, 20 small-scale policy studies, and 178action research studies were completed.

4.3. Action research projects focused for the most part on classroom-based problems, such as "improvingthe teaching of mathematics," "creativity in art and design," "how to encourage teachers to draw on a rangeof material and approaches, in order to maximize learning opportunities for students," etc. Facultymembers were enthusiastic about their projects. The research capacity of faculty members was enhancedand in some cases they incorporated lessons learned in their own teaching practice. However, the positiveimpact of the action-research studies was more apparent in the teacher education institutions than in theschools. In the participating schools, changes in the teacher's practice were less easy to see. Most school,appear to have treated the studies as "one off' experiments, rather than ongoing activities or approacheswhich could be integrated into their daily life. There were more extreme cases in which the schoolprincipals and the classroom teachers saw the action research as an imposition, whose purpose they did notunderstand. In one instance, a teacher regarded the research as a form of extended supervision of herclassroom practice.

In planning for future action research projects, bottom-up participatory approaches should be adopted, sothat classroom teachers and school principals are as fully involved in research design as are teachereducators from LPTKs. In judging the success of future action research project, attention should be paid tothe impact produced on practice within the participating schools, as well as to the quality of the writtenreport.

4.4. The Primary Education Research Journal. Preparation and publication of this research journal wasundertaken by the research unit at IKIP Yogyakarta. The papers drew on the findings of both thepolicy-oriented studies and the action research studies. The quality is variable, some papers were

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informative and innovative, others were less original. A total of seven issues of the Journal were published,with print runs of 500-1000. Copies were sent to the 89 UPPs in the Republic, the 36 LPTKs, the threecenters for masters-level primary teacher education programs, and the National Research and DevelopmentCenter (Balitbang Depdikbud). Members of the editorial team were however, unsure as to whether fundsfor continued publication will be available after the project culmination.

4.5. Overall, the connection between research, policy and practice does not appear to have been strongwithin the PGSD project. The policy-oriented studies do not seem to have been utilized to make policyrecommendations or to promote policy dialogue. The topics (distribution of primary teachers, teachersincentives, teachers appointment and recruitment, in-service training) are extremely relevant, however,dissemination of research results outside of the academic environment and impact in policy-making wereminimum.

5. Strengthening the Primary teacher education system5.1. Management at the central level. The need to establish a Sub-directorate of Teacher Educationwithin DGHE had been recognized for some time prior to the inception of the project. But for a variety ofreasons, the achievement of this goal proved elusive during the project period. Financial resources forsetting up the sub-directorate were not available; and furthernore approval from BAKN (Civil ServiceCommission), required changes in civil service structures, that were not forthcoming. The Borrower's ICRgives more details (see para. 31).

However, current developments are likely to resolve this impasse. During the ICR Mission wrap-upmeeting the Director General of Higher Education informed us that as part of the major reorganization ofMOEC and other Ministries currently under way, agreement had been reached for the establishment of abody to take responsibility for teacher education within DGHE. This body would be at the Directoraterather than Sub-directorate level, as initially planned. The functions of the new Directorate have yet to befully specified, but clearly it will have a major role to play in setting up and implementing a coherent set ofpolicies for the strengthening of teacher education, both at the primary and secondary levels.

5.2. Management at the local level. During the course of the project, the Central Steering Forum (ForumPengaruh Pusat, or SPP) took an active role in formulating policies for the more effective management ofteacher education on a number of occasions. Perhaps most important was its initiative in setting up thetargeted recruitment scheme for primary teacher trainees. This scheme, already discussed, established forthe first time mechanisms for the joint involvement of LPTK and Pemda staff in the recruitment of primaryteacher trainees. This fruitful collaboration between teacher educators and government officials inresolving local teacher supply issues is of course consonant with the wider initiative towards the devolutionof many decision making powers to more local levels of Government administration. Such institutionalmechanisms for teacher management must be further developed at the local level under the policy reforminitiatives of the basic education projects and the general implementation of the Laws 22 and 25.

Several institutional mechanisms have been put in place: The Central Steering Forum, the JointSecretariat, and the Working Team of the Coordination Forums for the System of the Provision andDevelopment of Educational Manpower (SPPP-TK) at the central, as well as province (DATI-I) andDistrict (DATI-II) levels.

53. Management at the institutional level. During the early days of the project, concerns wereexpressed as to the status of the primary teacher education program within the formal organizationalstructure of the Teacher Education Institutions. A letter from the DGHE instructed the TEls to establishPrimary Education as a Department (Jurusan) within the Faculty of Education (Fakultas Ilmu Pendidikan,

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or FIP). This arrangement would provide the Primary Education Program with a full-time Head (Kepala

Jurusan) and an independent budget. In many cases, implementation of this directive was delayed,apparently for the reason that a suitably-qualified Head (with a masters or doctorate qualification) could

not be identified. At four of the five institutions a full-time Head is now in place, in the fifth, anappointment is expected soon.

5.4. Strengthening ties between in-service and pre-service.In addition, the component would strengthen ties between: (a) pre-service and in-service teacher education,

and (b) the D2 training program and the SPP/CBSA activities supported by PEQIP.

During the preparation of the D2 pre-service curriculum, a productive dialogue was developed with

colleagues at the Open University who were working at the same time on the D2 curriculum for serving

teachers (D2 penyetaraan). The pre-service teams from the LPTKs benefited from the much widerexperience of Open University staff in developing and implementing programs for teachers in remote areas.

In particular, they were sensitized to the need to incorporate multigrade approaches to primary teaching

into the pre-service curriculum.

Unfortunately, nothing was done to strengthen the links between pre-service (PGSD) and in-service World

Bank supported projects, such as PEQIP. Important investments were made in both areas but the lack of

coordination both among Bank supported projects and among MOEC agencies did not favorcross-fertilization. Currently, three basic education projects have an important in-service component to

improve quality of education. These projects directly address problems of in-service professionaldevelopment for teachers at the provincial and district levels. However they do not make use of theinstitutional capacity that currently exists in the provincial LPTK and UPP units. Links among the twowould be beneficial for both, LPTK and UPP could be closer linked to the schools to improve their teachingpractice programs and they can be a useful resource for the professional development of the teachers thatoperate in school clusters.

A proposed study aimed at developing closer linkages between pre-service D2 project and theBank-supported PEQIP Project was never launched. Reasons are outlined in the Borrower's ICR.

4.3 Net Present Value/Economic rate of ret urn:No net present value (NPV) or economic rate of return (ERR) were calculated for the project in the SAR.

4.4 Financial rate of ret urn:No financial rate of return (FRR) or other financial indicators were calculated for the project in the SAR.

4.5 Institutional development impact:The project has improved the institutional capacity of pre-service teacher education institutions (LPTK-UPPs) in a significant way. The project was instrumental in developing an initial district and provincialcapacity for teacher supply and management that should be utilized and further developed by the jointeffort of local authorities and the three basic education projects. Links between the teacher educationinstitutions and the teacher management system should be further developed. The new Directorate of

Teacher Education should have a lead role in promoting these institutional links.

Under the new decentralization plans, the main responsibility for primary teacher recruitment andplacement will probably be devolved from the provinces to the districts (kabupaten and kotamadya). Butprimary teacher training will remain, for the most part, provincially-based. For the joint procedures to

remain valid, it will be essential for each LPTK to set up effective working relations with district-level

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authorities --not just the provincial authority as at present. For continuing teacher development, it wouldbe important to develop closer links between LPTK pre-service and in-service teacher training agencies andcloser links to the training needs of the-primary schools teachers.

5. Major Factors Affecting Implementation and Outcome

5. 1 Factors outside the control of governnment or implementing agency:Long administrative processes and the lack of procurement manuals translated into bahasa Indonesianlimited implementation or precluded the possibility of corrective measures. Delays in providing the noobjection letter for the overseas comparative study and the mis- procurement of commercially publishedlibrary books are two examples of these problems.

5.2 Factors generally subject to government cont-ol:Policy of wider mandate of teacher education institutions: The implementation of the wider mandateformally initiated under the Secondary Teacher Development project (PGSM) was originally intended toprovide students a more flexible option of obtaining a teacher education degree or a subject-based sciencedegree. Primary teacher education programs and secondary teacher education programs were supposed tobenefit within the context of a multi-mission institution. These LPTKs, would nevertheless, keep teachertraining as their prime commitment. A slow transition was envisaged; the LPTKs that had appropriateresources, mainly in mathematics and sciences, would be given the wider mandate first. This meant thatthey would offer "pure science" programs besides "teacher education" programs. But the wider mandateresulted in the immediate conversion of IKIPS (teacher education institutions) into regular Universities in avery short period of time without sufficient preparation. This fast conversion has meant simply a change oflabels without the required organizational and academic change. Therefore, there appears to be a strongchance that this conversion may hamper the development and improvement of their teacher trainingprograms, both primary and secondary.

Lack of coordination of sector policies such as the absence of a coordinating body for teacher educationand teacher allocation and management was a major draw back in the first years of project implementation.Prior to the project, the selection, training and certification of new teacher trainees and their subsequentselection, recruitment and placement as new teachers were entirely separate exercises in the hands ofdifferent agencies without coordination or clear policy. Agencies involved in teacher training andmanagement are: Civil Service Commission (BAKN), central and local offices of the Ministry of HomeAffairs (MOHA), central and regional offices of Ministry of Education (MOEC), DGHE, DGPSE,Dikgutentis, and teacher education institutions (LPTKs and UPPs). The project made a significantcontribution by creating some institutional spaces for the coordination of teacher policy and teachertraining. These instances should be further used and developed in the implementation of decentralizationruled by Law 22 and 25.

Sector coordination in academic matters: Quality in the implementation of the PGSD curriculum variesgreatly among the provincial LPTKs and the 87 UPPs. Institutional mechanisms are needed that allowinstitutional autonomy in higher education but also require academic accountability and quality assuranceamong teacher education institutions.

5.3 Factors generally suibject to implenienting agency control:The project took a wrong procedural step that resulted in mis-procurement of commercially publishedlibrary books. The Borrower's ICR argues that such problem could have been avoided if the appropriateinformation and rectification would have come in time; instead the procurement of the needed referencematerials was canceled.

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5.4 Costs andfinancing:Only the portions financed by the Bank loan were included in project cost by procurement arrangementsand project cost by category. Government has not provided actual project costs by component, byprocurement arrangement or by category.

There is a balance of $ 390,064.67 in the special account pending to be recovered. Disbursement Analystis expecting documentation of refund for this amount. Once this amount is recovered the availableundisbursed balanced of the loan will be canceled.

On the basis of total cost by component:Cost per-staff trained: $727 per year.Unit cost per teacher trained: $ 57 per year.Total project unit cost (direct and indirect) per primary student reached: $ 55.7 per student.

6. Sustainability

6.1 Rationale for sustainability raling.In terms of curriculum. professional development and research: The project put in place a new primarytea,cher education curriculum which is a marked improvement over its predecessor. This curriculum isbeen implemented by all LPTK (through their 87 UPPs). The salary incentives deriving from thefunctional credit system will encourage primary teacher educators to continue professional developmentefforts and applied research activities once project funding ends.

In terms of teacher supply and management: The project put in place a set of procedures bringing togetherthe institutions responsible for training new primary teachers (the LPTKs) and those responsible forrecruiting them (the PEMDAS offices). Provincial level joint committees were set up to discuss localteacher supply issues, and to reach mutually-agreed decisions as to how they should be resolved. Thisinnovation has been effective in developing a sense of purpose between the two agencies. Implementationis likely to become more complex with current Government decentralization plans for transferring decisionmaking-powers from central to more local administrative levels of operation. Under these decentralizationplans, the main responsibility for primary teacher recruitment and placement will probably be devolvedfrom the provinces to the districts (kabupaten and kotamadya). But primary teacher training will remain,for the most part, provincially-based. For the joint procedures to remain valid, it will be essential for eachLPTK to set up effective working relations with district-level authorities --not just the provincial authorityas at present. For continuing teacher development, it would be important to develop closer links betweenLPTK pre-service and in-service teacher training agencies and closer links to the training needs of the.primary schools teachers.

In summarv, institutional capacity has been developed both in teacher training institutions and inmechanisms for teacher supply and management. Govermment commitment is high as is clearly shown bythe recent creation of the Directorate of Teacher Education within DGHE. There are continuing incentivesfor voluntary teachers to pursue the teacher education program, e.g. the possibility of becoming a civilservant even after scholarship support has ended. Finally, the government movement towardsdecentralization and autonomy is in tune with the advances achieved by the project, so further progress isexpected.

6.2 Transition arrangement to regular operations:The project contributed to regular operations and the future implementation is in the hands of operatinginstitutions. Further recommendations for regular operations are:

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I . In each province, a collaborative review of the effectiveness and sustainability of the targeted D2recruitment program for SPG graduates working as guru honorer should be carried out by the LPTKand Pemda teams.

2. The provincial-level review of targeted D2 recruitment should include an analysis of its effects onprimary teacher distribution,

3. In provinces where the review of targeted recruitment indicates that the demand for D2 training fromSPG graduates working as guru honorer is close to being met, new teacher trainee recruitment plans,targeting the needs of the teacher-shortage areas, should be developed.

4. A formula based on pupil numbers for calculating teacher needs should be developed to replace theexisting class-based formula.

5. The impact of the recent conversion of the IKIPs into general universities should be monitoredcarefully, both at the central level by the new Directorate of Teacher Education and at the CentralSteering Forum, and at the local level institutions themselves. It will be important to ensure that thedevelopment of non-education programs does not lead to marginalization of the primary and secondaryteacher education programs, in terms of access to financial and professional resources, with consequentnegative effects on the quality of the teachers produced.

7. Bank and Borrower Performance

Bank7. I Lending;Bank's performance in identification, preparation assistance and appraisal of the project were barelysatisfactory. The project design should have anticipated the need to build-up some institutionalmechanisms to recruit teachers from the field (voluntary teachers) into the primary teacher educationprogram from the beginning. Data showing surplus of SPG/SGO teachers were available during projectpreparation but seemed to have been overlooked in design. Project appraisal should have includedcost-effectiveness criteria to analyze alternative courses of action tojustify the chosen one.

7.2 Szupervision:The project implementation progress was accurate as well as adequately and timely reported aftersupervision missions. Bank staff and consultants with appropriate mix of expertise in teacher education,economics and procurement assisted positively the project's planned programs. There was continuity interms of task managers and bank staff supporting the project. Implementation problems were identified atmid-term review and Bank staff offered helpful support in the "redirection" of project design. Performanceindicators measure the inputs and outputs of the project, but are not conducive to monitor performancetowards development objective and real impact of the project. The weakest points in supervision arerelated to establishing sound performance indicators and monitoring performance of the project. Also,project management and government claimed that they did not receive enough support from the Jakartaoffice. Despite the proximity to the field gained by greater authority of the country office someadministrative procedures have not become more efficient, e.g. delays in NOL.

7.3 Overall Bank performance:Satisfactory.

Borrower7.4 Preparation:The project has a sound design that integrates the different components: quality improvement componentsof teacher education programs and teacher supply management. However, preparation should have takeninto consideration early inter-agency coordination and the recruitment of voluntary teachers into the D2program from the beginning. Other technical preparation was adequate.

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7.5 Government inmplementation peiformance:

Considering the amount of inter-agency_coordination needed to implement the different components of the

project, government performance was satisfactory. Initially the draw back of the project had to do with

lack of institutional mechanisms of coordination but the project and government went through a learning

process in this regard.

7.6 Imiplementing Agency:In general, there was an effective coordination and management of the project. However, project

management centrally and provincially, focused essentially on administrative matters, placing more

attention on procurement and administration than on quality management'aspects of the project. For this

reason the project relied too strongly on technically qualified consultants for various components. Even

though this helped the direction and overall performance of the project it made it also more expensive.

Provinces' project managers also proved to be efficient administrators of the project but not strong in

academic matters. Academic and quality matters were carried out by the Director of the Primary

Education Program on the provincial Teacher Education Institutes. In this case, institutional capacity

remained in the TEI institutions once the project ended. Financial management of the project was weak.

7. 7 Overall Borrower performance:Overall Borrower performance was satisfactory. Inherent to the project design was the idea ofjump-starting reform efforts that would be taken over by the borrower in a sustained matter. Institutional

development therefore was exercised both by LPTKs, and by the local Pemdas. Initial LPTK and school

linkages were establish but in order to maintain and develop a successful Primary Teacher Education

Program this link needs to be stronger to benefit both institutions, as well as teacher training and teacher

performance. Further attention to monitoring and to influencing policy making with the results of policyresearch is necessary. Careful attention should be placed in the LPTKs conversion into university in order

not to hamper the Primary and Secondary Teacher Education Programs. Even though the teacher supply

system and the management of the teacher education system got unsatisfactory rating at certain point in the

process the rating improved towards the end of the project to satisfactory. The policy of targetedrecruitment should be carefully monitored and replicated in provinces were it was not implemented. Staff

development was rated superior at most stages of the project, because it achieved higher than plannedtargets and high completion rate. However, the project did not trace the direct involvement of

internationally trained staff in the Primary Teacher Education program and implementing UPPs.

8. Lessons Learned

8.1. Targeted recruitment: The targeted recruitment scheme was an innovation of the project from which

both the Government and the Bank learned several lessons: a) targeted recruits enter the D2 program more

committed than previous candidates to following a career in primary teaching, the period of voluntaryteaching has operated as a filtering mechanism; b) the promise of preferential treatment to the civil service

and a teaching post upon graduation operates as an incentive to the voluntary teachers to enter andcomplete the D2 program; c) the scheme was instrumental in upgrading the skills of teachers that werealready in the field; d) but most importantly, targeted recruitment addressed the equity objective: it

became an incentive for teachers from deprived and remote areas to enter the program and to go back to

these rural areas where they were most needed; e) when voluntary teachers were recruited into the primary

teacher education program (D2) from areas of teacher shortages, once they got a position as a civil servant,

they willing to teach in their home town and they were more committed to their community than other

graduates, f) there is an additional advantage to this program, and is the teacher's knowledge of the local

language (important in early grades) and furthermore the teacher's acceptance by the community where sheor he belongs.

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Finally, since the targeted recruitment scheme was conducted by the local government, it also contributed tothe creation of an incipient institutionaltframework for teacher management and deployment at the locallevel, allowing for greater accountability in a system that used to be extremely centralized.

The targeting of ex-SPG/SGO graduates was not intended to be a permanent measure; but a temporaryway to clear the backlog of trainees from the earlier teacher education program still waiting to be recruitedas primary teachers. However, as shown in the previous points a strong case can be made for continuing togive preference to applicants employed as voluntary teachers (guru honorer). Teacher trainers, primaryteachers and supervisors interviewed were also unanimous that the scheme has brought some benefits: a)targeted recruits were more motivated; b) the fact that they bring extensive classroom experience makesthem more rewarding students to teach, especially in the applied components of the D2 course; c) they arealso more effective in classroom management and instructional techniques than students without priorteaching experience.

Even though the targeted recruitment scheme is a more reliable method of attracting teachers to teachershortages areas (and therefore aims at reducing the wide inequalities in primary teacher distribution in mostprovinces) this component has not been widely implemented and in some cases proved short lived.Prioritization of teacher-shortages areas was maintained for two intakes cohorts (1996-97 and 1997-98),but since then has been discontinued in five of the six provinces visited. The reason offered was that it washard to maintain because recruiters preferred the highest scoring candidates and those did not necessarilycome from the teacher shortages areas. Voluntary teachers in the teacher-shortage schools (which were inisolated rural areas), perform on average less well in the selection tests than those from schools wereteachers are plentiful (mainly in urban and peri-urban areas). This places recruiters in a dilemma of eithergive priority to the candidates of teacher-shortage areas, or to higher-scoring candidates from non-shortageareas.

8.2. Quality improvement: The project successfully accomplished the project objectives of the qualityimprovement: It put in place a new primary teacher education curriculum, which is a marked improvementover its predecessor. Further, large numbers of teacher educators were enabled to strengthen their formalqualifications through professional development and were engaged in a applied research program.However, from the evidence of the mission's visits, these initiatives have had, to date, only a limited impacton the quality of the learning actually experienced by primary teacher education students in the LPTKs andin the schools.

Many of the benefits from the quality-improvement components of the project will not be sustained unless:

a) Teacher Education Institutions (LPTKs) take responsibility for ensuring that project gains are fullyutilized. LPTKs need to be encouraged to develop action plans aimed at maximizing the benefits from theproject by utilizing staff and supporting their continued development. Also by linking the findings ofPGSD (Primary School Teacher Development Program) initiatives to those of other projects. To be mosteffective, this action plan would need to be drawn up as a collaborative exercise by a broadly based group,including participants from PGSD, other staff within the Teacher Education Institute, and externalcontributors from the local education community (e.g. representatives from the local head teachers).

b) Teacher Education Institutions (LPTKs) model good practice. What is most striking to the externalobserver of primary teacher education at LPTKs is the gap between theory and practice. Staff who havebeen involved in professional development or action research spoke of the need for active learning and theimportance of finding a variety of ways of engaging young people in learning. However, teaching rooms at

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the UPPs were lacking in visual stimulation --children's work, and student-teachers' work were missing. Inthe D2 lessons we observed, the prevalent teaching style was teacher focused, chalk and talk. Unless thepre-service program models a range of4ffective pedagogic approaches, it is unlikely that trainees willbecome practitioners of these approaches when they take up their teaching careers.

c) Stronger connections are made between LPTK activities designed to improve primary education and

local school-based initiatives. Strategies aimed at improving primary teacher education are one element,albeit an important one, in improving the quality of teaching and learning in primary schools. Newteachers need to be supported within schools. Serving teachers need to be encouraged to reflect on theirpractices. Primary school head teachers are key figures in the changing process. However, it appears frominterviews carried out for this review that head teachers see themselves primarily as administrators, ratherthan educational leaders, responsible for curriculum implementation and practice. The role of the headteachers needs to be redefined in the new and changing Indonesian context. New training programs need tofocus on serving and new heads to prepare them for this new and expanded role.

9. Partner Comments

(a) Borrower/implementing agency:

(b) Cofinanciers:

(c) Other partners (NGOs/private sector):

10. Additional Information

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Annex 1. Key Performance IndicatorsALog Frame Matrix

Table 1: Performance Indicators

SAR Redirection(November 1996)

A. Developing Primary Teacher Educators: 1. Produce well-trained primary schoolteachers through five semesters tertiary diploma

1. The number of PGSD personnel successfully course, in numbers matching estimated needs.completing the various kinds of study/training programs.2. The number of PGSD personnel returning to PGSD 1. Teacher-candidates' satisfactory performancemanagement or teaching positions after completing short - or during student teaching; andlong-term overseas training and local undergraduateprograms (S 1, S2). 2. Teacher-candidates' satisfactory completion of3. The number of supervising teachers (guru pamong) five semesters diploma course.successfully completing their training program; and4. The number of primary school teachers completing 11. Sufficient number of teachers posted to needythe domestic SI training program in primary teacher areas:education.

1. 90 % of graduates hired as teachers.

2. 100% of project scholars (teacher with SPGqualification) are posted to their home province.

3. Project graduates continue at post two yearsafter initial appointment.

B. Strengthening Primary Teacher EducationPrograms:

1. The kinds, quantities, and timing of materials andequipment distribution to UPPs.2. The completion and quality (according to expertopinion) of curricular revisions (pre-service and in-service).3. The number, titles and quality (according to expertopinion) of curricular materials (textbook and modules)produced, tried-out, and revised; and4. The number, titles and quality (according to expertopinion) of supplementary PGSD materials (for students andlectures) translated, adapted and created.

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C. Establishing a Co-ordinated System for TeacherSupply and Distribution:

I. The creation and use of formula for determnining thenumber of teachers needed.2. The number of times Coordination Forums (National,Provincial, and Regional) met and the major decisions theymade.3. The number of times and the places per year teacherdistribution maps/chart were produced, distributed anddiscussed.4. The numbers and geographical origins of targetstudents recruited per year and the number of scholarshipsawarded to needy students, by LPTK.5. The number of dormitory rooms built and theoccupancy rate by targeted students; and6. The number of PGSD graduates appointed to teachingjobs, indicating job locations and waiting time.

D. Building Research and Development Capacity:

I. The completion and quality (according to expertopinion) of policy studies: the number of policy reviewseminars held; a listing of policy recommendations from thestudies, which were accepted and put into practice.2. The number of small grants and applied researchworkshops held; the locations and number of participants ineach.3. The number and topics of small grant research studiescompleted; their quality and utility (according to expertopinion).4. The number of action-oriented research pilot studiescompleted; their quality and utility (according to expertopinion).5. The number of Research Journal editions andSeminar Proceeding published and distributed;6. The number and titles of other research books,articles, manuals, and bibliographies and abstracts publishedand distributed.

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E. Strengthening the Primary Teacher EducationSystem Programs.

I. Progress in establishing a Sub-directorate for TeacherEducation.2. Completion and quality (according to expert opinion)of study on PGSD management reforms.3. The number of PGSD managers successfullycompleting management training.4. The impact of PGSD management reforms (in termsof improved organizational management and instructionalquality).5. The completion of workshops for the coordination ofpre-service and in-service PGSD.6. The completion of pilot study on PGSD-PEQIPintegration; and7. The completion of preparations for future projects(secondary teacher education; second phase primary teachereducation).

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Annex 2. Project Costs and Financing

Project Cost by Component (in US$ millon equivalent)Appraisal Actual/Latest Percentage ofEstimate Estimate Appraisal

Project Cost By Component US$ million US$ millionDeveloping Primary Teacher Educators 28.20Strengthening Primary Teacher Education Programs 15.60Establishing a Coordinated System for Teacher Supply and 6.40DistributionBuilding Research and Development Capacity 2.10Strengthiening the Primary Teacher Education System 1.80

Total Baseline Cost 54.10 0.00

Total Project Costs 54.10 0.00Total Financing Required 54.10 0.00

Project Costs by Procurement Arrangements (Appraisal Estimate) (US$ million equivalent)

Expenditure Category ICB Procurement Method 2 N.B.F. Total Cost

1. Works 0.00 9.80 0.00 0.00 9.80(0.00) (4.90) (0.00) (0.00) (4.90)

2. Goods 0.00 2.00 2.20 0.90 5.10(0.00) (1.40) (1.20) (0.00) (2.60)

3. Services 0.00 0.00 1.70 0.00 1.70Technical Assistance (0.00) (0.00) (1.70) (0.00) (1.70)4. Miscellaneous 0.00 0.00 32.00 0.00 32.00Fellowships & (0.00) (0.00) (24.70) (0.00) (24.70)Scholarships5. Miscellaneous 0.00 0.00 3.80 0.00 3.80Research & Studies, and (0.00) (0.00) (2.70) (0.00) (2.70)In-country Training6. Miscellaneous 0.00 0.00 0.00 1.70 1.70Project Management (0.00) (0.00) (0.00) (0.00) (0.00)

Total 0.00 11.80 39.70 2.60 54.10(0.00) (6.30) (30.30) (0.00) (36.60)

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Project Costs by Procurement Arrangements (Actual/Latest Estimate) (US$ million equival nt)

Procurement MethodExpenditure Category ICB NCB Other2 N.B.F. Total Cost

1. Works 0.00 9.80 0.00 0.00 9.80

(0.00) (3.80) (0.00) (0.00) (3.80)2. Goods 0.00 2.00 2.20 0.90 5.10

(0.00) (1.26) (0.63) (1.89) (3.78)3. Services 0.00 0.00 1.70 0.00 1.70Technical Assistance (0.00) (0.00) (1.60) (0.00) (1.60)4. Miscellaneous 0.00 0.00 32.00 0.00 32.00Fellowships & (0.00) (0.00) (19.00) (0.00) (19.00)Scholarships5. Miscellaneous 0.00 0.00 3.80 0.00 3.80Research & Studies, and (0.00) (0.00) (3.90) (0.00) (3.90)In-country Training6. Miscellaneous 0.00 0.00 0.00 1.70 1.70Project Management (0.00) (0.00) (0.00) (0.30) (0.30)

Total 0.00 11.80 39.70 2.60 54.10

________________________ (0.00) (5.06) (25.13) (2.19) (32.38)Note: We do not have figures for overall project investment. We are only providing the Bank financedportions.

Figures in parenthesis are the amounts to be financed by the Bank Loan. All costs include contingencies.

' Includes civil works and goods to be procured through national shopping, consulting services, services of contractedstaff of the project management office, training, technical assistance services, and incremental operating costs related to(i) managing the project, and (ii) re-lending project funds to local government units.

Project Financing by Category of Expenditures (in US$ million equivalent)Percentage of Appraisal

Appraisal Estimate ActuaULatest EstimateBank Govt. CoF. Bank Govt. CoF. Bank Govt. CoF.

Civil Works 4.50 4.50 3.76 83.6 0.0 0.0Furniture 0.00 0.90 0.00 0.0 0.0 0.0Equipment 1.10 0.10 1.31 119.1 0.0 0.0Learning/Teaching 1.40 1.40 0.57 40.7 0.0 0.0

MaterialsTechnical Assistance 1.70 0.00 1.56 91.8 0.0 0.0Fellowships 0.0 0.0 0.0

Overseas 13.90 0.00 11.80 84.9 0.0 0.0In-Country 5.20 5.30 2.34 45.0 0.0 0.0

Research and Studies 1.60 0.00 1.48 92.5 0.0 0.0In-Country Training 1.10 1.10 2.37 215.5 0.0 0.0Scholarships 3.80 1.60 4.89 128.7 0.0 0.0Project Management 0.00 1.70 0.00 0.0 0.0 0.0Unallocated 2.30 0.90 0.0 0.0 0.0TOTAL 36.60 17.50 30.08 82.2 0.0 0.0

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Annex 3: Economic Costs and Benefits

A cost benefit analysis was not done for this project. The project was prepared in 1990.

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Annex 4. Bank Inputs

(a) Missions:Stage of Project Cycle No. of Persons and Specialty Performa nce Rating

(e.g. 2 Economists, I FMS, etc.) Implementation DevelopmentMonth/Year Count Specialty Progress Objective

Identification/Preparation6/19/91- 4 1 Economist S S7/23/91 2 Educators/Consultants

I Education Research Assistant

Appraisal/Negotiation01/13/92- 3 1 Economist S S01/29/92 1 Educator

I Project Assistant05/06/92- 5 1 Economist S S05/07/92 1 Lawyer

I Disbursement OfficerI Project AssistantI Educator

Supervision02/09/93- 2 1 Economist S S02/23/93 1 Educator08/18/93- 3 1 Operations Officer S S08/28/93 1 Architect

I Procurement Specialist10/15/94- 2 1 Educator S S10/24/94 1 Operations Officer04/06/94- 2 2 Educators S S04/14/9405/22/95- 3 2 Operations Officer S S05/31/95 I Educator08/21/95- 1 1 Economist S S09/16/9511/6/95 - 3 2 Economists S S11/16/95 1 Educator04/10/96 - 4 2 Educators S S04/19/96 2 Operations Officers06/30/96 - I I Educator S S07/29/9611/11/96 - 4 2 Educators S S11/15/96 2 Operations Officers09/15/97 - 2 2 Educators S S10/03/9709/01/98 - 2 2 Educators S S09/18/9803/08/99 - 3 2 Educators S S03/25/99 1 Economist

SS

- 24 -

ICR11/01/99 - 3 2 Educators S S11/19/99

(b) Staff.

Stage of Project Cycle Actual/Latest Estimate

No. Staff weeks US$ (,000)Identification/Preparation 107.7 213,800Appraisal/Negotiation 31.3 64,000Supervision 81.7 234,000ICR n/a n/aTotal 220.7 511,800

- 25 -

Annex 5. Ratings for Achievement of Objectives/Outputs of Components

(H=High, SU=Substantial, M=Modest, N=Negligible, NA=Not Applicable)

Rating@Macropolicies O H OSUOM O N * NAZ Sector Policies O H *SUOM O N O NA@ Physical O H OSU*M O N O NAEl Financial O H OSUOM O N * NA@ Institutional Development 0 H 0 SU 0 M 0 N 0 NA@Environmental O H O SU O M O N * NA

Social@ Poverty Reduction O H OSU*M O N O NAZ Gender OH OSUOM O N O NAZ Other (Please specify) O H OSUOM O N * NA

@ Private sector development 0 H O SU O M 0 N * NAF Public sector management 0 H O SUO M 0 N 0 NAE Other (Please specify)

-26 -

Annex 6. Ratings of Bank and Borrower Performance

(HS=Highly Satisfactory, S=Satisfactory, iJ=Unsatisfactory, HU=Highly Unsatisfactory)

6.1 Bank performance Rating

Z Lending OHS *S OU OHUZ Supervision O HS * S OU OHUZ Overall OHS OS O U O HU

6.2 Borrower performance Rating

Z Preparation OH S O S * U O HUIX Government implementation performance 0 HS O S 0 U 0 HUZ Implementation agency performance 0 HS 0 S 0 U 0 HUZ Overall OHS OS OU O HU

- 27 -

Annex 7. List of Supporting Documents

Govemment of Indonesia. Contribution.to the Implementation Completion Report on the Primary SchoolTeacher Development Project (Loan 3496-Ind) Summary.

@3 E3Summary of ICR PSTE Project IBRD 3496-LND.c Tables of ICR PSTE Project IBRD 3496-IND.c

Indonesia. Primary School Teacher Development Project Aide Memoire. Project ImplementationCompletion Mission. November Ist to November 19th, 1999.

E3AideMemoire PGSD3496.DO(

Other references:

Nielsen, D. and Somerset, A. Primary School Teacher Education Study. National Consortium of TeacherEducation. Ministry of Education and Culture/ World Bank, Jakarta, 1991.

The World Bank. Staff Appraisal Report. Indonesia- Primary School Teacher Development Project. May13, 1992.

- 28 -

IndonesiaPrimary School Teacher Development Project (Loan 3496-Ind)

Aide MemoireProject firiplementation Completion Mission

November I st to November 19th, 1999

A. Introduction

A Project Completion Mission was carried out between November I" and November 19 h. Members of theteam were Clementina Acedo (WB, Team Leader), Kathryn Riley (WB, Education Specialist), AnthonySomerset (WB, Consultant) and Raka Joni (MOEC Consultant). The Mission team met with the ProjectDirector in Jakarta and part of his team to plan the field visits and establish the objective of the Mission.Field visits were paid to PGSD implementation sites in Jawa Timur between Nov. 3rd and 5th (Acedo, Riley,Somerset and Raka Joni); Bali between Nov. 8th and 10th (Acedo, Riley and Raka Joni); and Sulawesi Utarabetween Nov. 8 and 12th (Somerset). Subsequently, Somerset carried out two further field visits: toSumatera Barat (Nov 25th to 27h) and DI Yogyakarta (Nov 29th to Dec 1').

The Teacher Education Institutions (TEI) visited were IKIP Malang, (now the University of Malang), IKIPManado, STKIP Singaraja, IKIP Padang (now the University of Padang) and IKIP Yogyakarta (now theUniversity of Yogyakarta) together with their respective Primary Teacher Education Implementation Units(UPPs) and practice schools. We also visited the PEMDA offices in each province. In each TEI the teammet with the PGSD project manager, senior academic staff, heads of UPPs, faculty members involved inprimary teacher education, and primary teacher trainees. At the practice schools we met with principals,teachers and pupils. We carried out classroom observations at both the UPPs and at the primary schools.

From the above list it will be clear that we have taken up many people's time during the course of thisMission. To all of them we express our warmest thanks for their courtesy and kindness, and for thenumerous insights they provided us.

This Aide Memoire is subject to review by Bank management.

B. Statement of Purpose

The analysis presented here is selective in character. It does not attempt a full evaluation of all Projectactivities, but rather gives an assessment of their impact, and of the factors which are likely to support orimpede their longer-term sustainability.

C. Significant Achievements and Major Issues of Concern

1. Teacher Supply

Among the numerous issues confronting the Primary Teacher Education Project (PGSD) implementationteam, perhaps the most intractable have been those concerning the teacher supply system. The final yearsof the old secondary-level Sekolah Pendidikan Guru (SPG) teacher education program during the late1980s saw approximately 70,000 new primary teacher graduates being produced each year. Howevercalculations carried out during Project preparation in 1990-91 indicated that the number of new teachersbeing recruited into the civil service each year was no more than about 10-12% of this figure, and thatrecruitment rates were unlikely to rise substantially in the short or the medium term. Although numerousschools were severely short of teachers, the national primary pupil:teacher ratio was a generous 23:1. Themost crucial issue concerning primary teacher supply was - and still remains - the issue of distribution,rather than of overall teacher numbers.

Furthermore, at the time the vast majority of the existing primary teachers were still very young, so thatreplacement needs for retiring teachers were low. The median age of the teaching force was only about 34;and less than 2% were reaching retirement age each year.

I

Table 1. D2 Pre-service Primary Teacher Education:National recruitment, graduation and scholarship data, 1990-91 to 1999-2000

Year Recruitment Scholarship Number Number % placedprovision recruited graduated by 1999

1990-91 Open: Mainly None 7,0001991-92 SMU and SPG 7,0001992-93 graduates 20% received 7,000 6,359 95.61993-94 Project-funded 6,888 88.91994-95 scholarships 7,028 87.21995-96 (Rp65,000 per 5,000 7,248 70.9

___ ___ ___ ___ ___ ___ ___ ___ __ sem ) _ _ _ _ _ _ _

1996-97 Targeted: guru 100% received 2,500 7,003 56.21997-98 honorer only Proj-funded 2,500 5,001 27.0

scholarships(Rp200,000 per

_______________ ~sem )__ _ _ _ _ __ _ _ _ _ _ _ _

1998-99 Variable: JaTim, Variable: Pemda Not known 2,664 79.61999-00 Bali targeted; schols for 21% in Not known Still in course -

SulUt open JaTimTotal 42,191

In the light of these data, recruitment to the new tertiary-level D2 pre-service program was restricteddrastically. The first intake, in 1990-91, amounted to only about 7,000; while in subsequent cohorts therewere further reductions, to only 5,000 by 1995-96. Details can be seen in Table 1.

Initially, this strategy seemed to be succeeding: as many as 95% of the first group of D2 students tograduate were recruited as primary teachers. But in the following years, the absorption rate droppedsteadily, to about 70% (in thel995-96 graduation cohort), then to 56% (1996-97), and finally to only 27%(1997-98) (See Table 1) The main reason was that vacancies were increasingly being filled by graduatesfrom the earlier SPG program who had been working as voluntary teachers (guru honorer, or widya bakti)in the primary schools. Working as a guru honorer is widely perceived as a form of queuing, throughwhich unemployed teacher education graduates acquire an implicit right to receive preferentialconsideration when new teachers are being recruited.

Targeted teacher trainee recruitment.

Clearly, this emerging situation placed the new D2 program - and the Primary Teacher Education Projectthrough which it was being developed - in considerable jeopardy. If most D2 graduates were to remainunemployed, there was obviously little point in devoting substantial resources to strengthening the qualityof the training they received.

In response to this challenge, the Project Team, working together with the LPTKs (Teacher EducationInstitutions), and the local PEMDA (Home Affairs) offices, devised a targeted teacher trainee recruitmentscheme. Implementation started with the 1996-97 D2 intake cohort. The scheme had the following majorfeatures:

I. Recruitment to the D2 pre-service teacher education program was restricted to graduates from theold secondary-level SPG program who were working as guru honorer in the primary schools.Previously, graduates from other senior secondary programs (SMU, SMEA), together with SPGgraduates who had not been working as guru honorer, were also eligible to apply.

2. Recruitment was carried out collaboratively by Local Government (Pemda) and LPTK teams.Criteria varied: in Bali, recruitment was restricted to guru honorer from the three districts

2

(kabupaten) with the most severe teacher shortages; whereas in Jawa Timor, one guru honorer wasaccepted from each sub-district (kecamatan).

3. Recruitment numbers were severely restricted. Intakes were based on estimates of the numbers ofvacancies for new teachers likely to be available when the trainees graduated two and one-halfyears later. Exact matching was not, of course, possible, because the number of primary teacherslots (the formasi) is set annually and changes from year to year.

4. All recruits received a generous Project-funded bursary amounting to Rp 200,000 per month,equivalent to Rp 1.2 million per semester. (The Project had in fact funded bursaries since itsinception, but in earlier years they had amounted to only Rp 65,000 per semester, and only 20% ofD2 recruits had received them).

5. Recruits were given an undertaking that upon graduation, they would have priority forappointment as civil servants, and would be posted as primary teachers back in the schools wherethey had worked as guru honorer.

Only one cohort has completed D2 training since targeted recruitment started. These students graduated inearly 1999, but the data indicate that already (November 1999) nearly 80% have been appointed aspermanent teachers with civil service status. Clearly, targeted recruitment has brought about a massiveimprovement in the employment prospects of D2 primary teacher trainees.

During the Mission we discussed targeted recruitment with a number of D2 teacher trainers, together withseveral primary teachers (guru pamong) involved in the supervision of practice teaching (PPL). Withoutexception, all were unanimous in their view that the scheme has brought substantial benefits:

I . Targeted recruits all enter the D2 program committed to following a career in primary teaching.In effect, the period spent in voluntary teaching acts as a filtering mechanism: over time those whoare less enthusiastic about becoming primary teachers find alternative means for earning theirliving. Students recruited directly from senior secondary school, by contrast, have often comeinto primary teacher education as a last resort, having failed to gain admission to preferredalternatives (usually a university degree program or secondary teacher education).

2. Similarly, the fact that they have a promise of preferential recruitment to the civil service and ateaching post after graduation further enhances motivation. Students in previous cohorts, bycontrast, faced the prospect of a long period of unemployment after graduation, with no guaranteethat their wait would ultimately be rewarded with a posting.

3. Finally, the fact that the targeted recruits bring extensive classroom experience with them makesthem more rewarding students to teach, especially in the applied components of the D2 course. Atthe schools where targeted recruits were engaged in teaching practice (PPL), every guru pamongwe asked was emphatic that they are more effective in classroom management and instructionaltechniques than students without prior teaching experience. A caveat must, however, be entered:the apparently superior performance of the targeted recruits in PPL may be simply a reflection oftheir longer teaching experience, and have little to do with what they have learned during the D2course.

As to subject content mastery, opinions were divided. In the view of some informants, trainees recruiteddirectly from senior secondary (SMU) courses have a better grasp of subject content than the targetedrecruits, who were all, of course, originally trained as teachers after completing formal education to onlythe junior secondary (SLTP) level. This is, of course, a question which could be settled through analysis ofstudent grade records, but to our knowledge no such analysis has as yet been carried out.

Scholarship support for the targeted recruitment scheme was provided by the Project for all students in thefirst two cohorts - those entering D2 training in the years 1996-97 and 1997-98. Students from the firstcohort graduated in early 1999; those from the second cohort are still (November 1999) in their final (fifth)

semester. But the two successor cohorts - those for 1998-99 and 1999-2000 - have received no Project-funded scholarship support.

Response to the ending of the Project-funded scholarship program has varied sharply among the sixprovinces for which data were collected during the Mission. The contrasting pattems are summarized inTable 2. The data are for the most recent intake (1999-2000).

In Jawa Timor, the targeted recruitment of SPG graduates working as guru honorer has continued, withprovincial Pemda funds supporting a partial continuation of the scholarship program. Approximately 20%of the 1999-2000 intake will receive scholarships amounting to Rpl 55,000 per semester, although at thetime of our visit (Nov 1999) payments had yet to start. The remaining 80% must pay their own fees andmeet their own living costs; but apparently the promise of priority in primary teacher recruitment aftergraduation is a sufficiently strong incentive to keep them enrolled in the program. The PGSD team at theUniversity of Malang (IKIP Malang) arranges the D2 schedule so that all activities take place betweenMonday and Thursday each week, leaving students free to return to their schools and continue working asguru honorer on Friday and Saturday. Recruits are initially screened by Kabupaten-level Pemda officials,with final selection carried out jointly by the Pemda and IKIP teams. In Kabupaten Malang, one recruit isaccepted from each kecamaten (sub-district): no attempt is made to prioritize kecamaten with the mostsevere teacher shortages.

In Bali, as in Jawa Timur, targeted recruitment of SPG graduates working as guru honorer has continued;but no program of scholarship support has been planned. All come from three regions of Bali identified asthose with the severest teacher shortages: two kabupaten, together with a single kecamaten in a thirdkabupaten. No special timetabling arrangements are made to allow D2 trainees to continue working intheir schools on a part-time basis.

In Sumatera Barat, the targeting of SPG graduates working as guru honorer for training places hasessentially continued, but for the 1999-2000 intake they took up only 80% of the available places, with theremaining 20% going to senior secondary graduates without teaching experience. Places are allocated ona district-quota basis: 25 places go to each kabupaten, irrespective of the number of primary schools itcontains or the degree to which it experiences teacher shortages. There are plans to provide all recruitswith financial support, amounting to Rp 195,000 per semester - sufficient to cover fees (SPP) but notliving and travel costs. Funding will come from the district-level Pemda offices - not the provincialoffices as in the case of Jawa Timor and Jawa Tengah.

4

Table 2. D2 targeted recruitmentPatterns in six provinces since Project-funded scholarship support ended

(Data for the 1999-2000 intake)

Jawa Timur Bali Sul. Utara Sumatera Barat Jawa Tengah* Yogyakarta

(IKIP Malang) (STKIP Singgaraja) (IKIP Manado) (IKIP Padang) (IKIP Yogya) (IKIP Yogya)

Targeted D2 Yes. All D2 Yes. All D2 recruits are No. Majority of D2 80% of D2 recruits are 75% of D2 recruits 25% of D2 recruits

recruitment of SPG recruits are SPG SPG grads with teaching recruits are recent SPG grads with SPG grads; 25% SPG grads; 75%

grads continued since grads with teaching experience senior sec. leavers; teaching experience; senior sec leavers senior sec leavers

Project support experience few or none are SPG 20% senior sec.

ended? grads. leavers

D2 recruits from No. Quota of one Yes. Two teacher- No No. Quota of 25 per No. Quota of 20 N6t. Quota of 20

teacher shortage recruit per shortage kabupaten and kabupaten; 14 for Kod from each of 4 from each

areas? kecamatan. No one kecamatan targeted; Padang. No account kabupaten. kabupaten/

account taken of no recruits from other taken of current Kotamadya

current teacher areas teacher distribution.

distribution.Who selects D2 Pemda + IKIP staff Pemda + STKIP staff IKIP staff only Pemda + IKIP staff Pemda + IKIP staff Pemda + IKIP staff

recruits?Scholarships Yes. 20% will No No Yes. All will receive Yes. All will receive No

available? receive Provincial District-level Pemda Provincial Pemda

Pemda support: support: Rp 195,000 support, but only

200,000 per per semester. Rp 75,000 per

semester. semester.

Priority recruitment Yes Yes No Yes Yes No

to permanentteaching posts ongraduation?

* Kabupaten Purbalingga, Banjamegara, Purworejo and Banyumas only. Four other TEls in Jawa Tengah recruit primary teacher trainees from the other 23

kabupaten.

r

In Jawa Tengah, as in Sumatera Barat, the majority of places continue to be reserved for SPG graduatesworking as guru honorer, but in the most recent intake (1999-2000) about one-quarter of the places went torecent secondary school leavers. Bursaries from the provincial Pemda office are expected to be available,but will amount to only Rp 75,000 per-recruit - less than half the sum required for SPP fees alone. Despitethe low level of financial support, competition for D2 places is strong: for the 1999-2000 intake, more than300 applications were received for 80 places. Applicants are rated on a 100-point scale, based on scores ona set of cognitive and attitude tests, the results of an interview, and a measure of the isolation of the schoolfrom which the applicant comes. In practice, however, the school-isolation measure has little effect onrecruitment decisions, because it accounts for only 5 points on the 100-point scale (applicants from themost isolated schools receive 5 points; applicants from inner-city schools, one point)

In Sulawesi Utara, however, the targeted recruitment of SPG graduates working as guru honorer endedwith the 1997-98 intake, when Project support for D2 scholarships came to an end. D2 recruitmentprocedures have reverted to those in place before the inception of the targeted scheme. Applications for theD2 course are made to the teacher training institution (IKIP Manado or STKIP Gorontalo), and comepredominantly from recent senior secondary graduates. In a group of 35 trainees from the most recentintake at IKIP Manado, about 70% had completed senior secondary school within the past two years, andnot a single student was an SPG graduate with teaching experience.

Similarly in Di Yogyakarta, targeted recruitment of SPG graduates came to an end when Project supportterminated. In the most recent intake, only about one-quarter were SPG graduates. It was explained to usthat the need for targeted recruitment has now passed, as most SPG graduates working as guru honorer inYogyakarta primary schools had either been recruited as permanent teachers (guru tetap) or been absorbedinto D2 training.

Issues in teacher supply

1. Sustainability of targeted D2 recruitment.

As we have seen, Project-funded scholarships played a major role in promoting the introduction of targetedD2 recruitment; but evidence as to whether the scheme can be sustained without scholarship support isambiguous. In four of the six provinces from which information was obtained, targeted recruitment hasbeen maintained, albeit with modifications; whereas in the remaining two provinces (Dl Yogyakarta andSulawesi Utara) recruitment procedures have reverted to those being followed before the targeted systembegan.

In Dl Yogyakarta, as we have noted, the pool of SPG graduates waiting for permanent employment hasapparently almost dried up, so targeted recruitment is no longer needed. But in Sulawesi Utara thecircumstances are different, and the consequences of the abandonment of targeted recruitment may well beserious. Data made available to us during our visit indicated that in 1996-97, there were throughout theprovince a total of nearly 600 SPG graduates working in the primary schools as guru honorer. Of these,only about 120 have received training through the D2 targeted recruitment scheme.' To these must beadded about 800 trainees who graduated from the D2 program before targeted recruitment started.

In all probability, these SPG and D2 graduates will receive preference for appointment as permanentteachers once the last batch of targeted recruits, due to graduate in early 2000, have been placed. This inturn is likely to have major backwash effects on the functioning of primary teacher education in theprovince in the years to come. If employment prospects for new graduates are poor, it will be difficult toattract well-qualified applicants to primary teacher training, and to maintain the motivation of those alreadyenrolled.

In each province, a collaborative review of the effectiveness and sustainability of the targeted D2recruitment program for SPG graduates working as giuru honorer should be carried out by theLPTK and Pemda teams.

At IKIP Manado and STKIP Gorontalo. The proportion of these SPG graduates below the age of 35 -and hence eligible for D2 recruitment - is not known.

6

2. Targeted D2 recruitment and teacher distribution

As we have noted, the targeted D2 recruitment scheme has done much to strengthen primary teachereducation by enhancing student motivation. However its effects on the distribution of teachers in theschools remain to be explored. In many parts of Indonesia, a high proportion of primary schools employ noguru honorer at all, and thus cannot receive new teachers through the targeted recruitment scheme.Although data are lacking, it is likely that these schools are located predominantly in the more isolatedparts of the country, where communities lack the resources to hire guru honorer. If this is the case, theeffects of targeted recruitment might tend to exacerbate the already massive disparities in teacherdistribution, rather than to reduce them.

The provincial-level review of targeted D2 recrzitment should include an analysis of its effects onprimary teacher distribution

3. Longer-term planning for primary teacher trainee recruitment

The targeted D2 recruitment scheme was conceived of essentially as a short-term measure, to relieve thepressure on primary teacher appointments resulting from the huge surpluses of SPG graduates created bythe massive expansion of pre-service teacher education programs during the 1980s. In the medium orlonger term, however, this pressure is likely to ease, as SPG graduates are either absorbed into the regularprimary teaching force through targeted D2 recruitment, or find employment outside the profession. It issaid that in some provinces, including Jambi, the supply of SPG graduates for the targeted recruitmentprogram is already drying up.

In provinces where the review of targeted recriitinent indicates that the demandfor D2 trainingfrom SPG graduiates working as giuru honorer is close to being met, new teacher traineerecruitment plans, targeting the needs of the teacher-shortage areas, shouild be developed

4. Calculating teacher needs

The use of a class-based formula to calculate primary school teacher needs creates difficulties in identifyingschools where teacher shortages are greatest. The current formula allocates to each school a teacher foreach class, plus a principal, a sports teacher, and a religion teacher. Thus a primary school covering all sixgrades requires a minimum of nine teachers - irrespective of how many pupils are enrolled.

Data from Sulawesi Utara illustrate the problems in applying this formula. Most primary schools inSulawesi Utara are small: 1998-99 Pemda data indicate a total of 2,961 primary schools, 18,006 classes,22,897 teachers and 338,559 pupils. Thus the average school has an enrollment of 115 pupils, the averageclass consists of 18.8 pupils, and the overall pupil:teacher ratio is 14.8.

Despite this substantial provision, the teacher needs analysis prepared by the Pemda team shows the greatmajority of schools as being still short of teachers. The reason, of course, is that the class-based formula isextremely generous to small schools. To take an example: a school with an enrollment of 41 pupils in 6classes taught by 6 teachers (and hence an average class size of only 6.7 pupils, and similarly apupil:teacher ratio of 6.7) is shown in the statistics as being 'short' of three teachers. If these threeadditional teachers were supplied, the PTR for this school would drop to a mere 4.5! 2

2 Consolidation of smaller primary schools into larger units, already under way in many provinces, willprovide a partial solution to the problem; but nevertheless a high proportion of small schools are too distantfrom other schools for consolidation to be feasible.

In Sulawesi Utara, decisions as to which schools should receive new teachers are based on summarisedtables in which only class numbers and teacher numbers appear. Pupil numbers are not given. Hence aschool such as the one discussed in the text will receive the same priority for new teacher allocation as amuch larger school, with six teachers and six classes, but three or four times as many pupils in each class.

7

A formula based on pupil numbersfor calculating teacher needs should be developed to replacethe existing class-basedformula

2. Strengthening Primary Teacher Education Programs

When responsibility for the pre-service training of primary teachers was transferred from the DirectorateGeneral of Primary and Secondary Education (DGPSE) to the Directorate General of Higher Education(DGHE) in 1990, Indonesia's tertiary level Teacher Education Institutes (the IKIPs, FKIPs and STIPs,known collectively as LPTK) were faced with a major challenge. Until the transfer, the LPTK had beenresponsible solely for the preparation of secondary teachers, so little expertise in the methods of primaryteacher education was available.

Working to extremely tight deadlines, LPTK teams produced a curriculum for the new D2 primary teachereducation program during 1990, but it was recognized from the outset that the resulting materials wereinadequate in many respects, and would require early replacement. Soon after the commencement of theProject period, seven two-member teams of senior teacher educators visited a total of 26 TEls in fivecountries (Australia, New Zealand, Japan, the United States and the United Kingdom), to seek possiblelinkages through which technical assistance might be made available. After these visits, six institutions(three in the USA, two in Australia and one in the UK) were invited to collaborate with Indonesian teachereducators in a range of staff and program development activities.

As one major result of this initiative, workshops for the development of curricula for both the D2 and S2(Masters) programs were held at the University of Huston, Texas, and the Ohio State University, USA,between November 1993 and February 1994. These workshops brought together teacher educators fromIndonesia and faculty members from all the six partner universities - including those in Australia and theUK. The drafts developed during these workshops were further refined in Indonesia, before official releaseas the D2 Pre-service Primary Teachers' Curriculum (1995), and the S2 Masters level Teacher EducationCurriculum.

The D2 Pre-service Teacher Education Curriculum

The D2 pre-service teacher education program extends over five semesters (two and one-half years). It ismade up of a total of 78 credit unit points (SKS), including 8 in basic general courses (Pancasila, Religion,Citizenship); 16 in general education courses (educational foundations, class management, evaluation,guidance, teaching and learning strategies); 47 in the subjects of the primary curriculum; and 5 in teachingpractice (PPL).

The new curriculum has a number of innovative features, which distinguish it sharply from its predecessorand represent marked improvements. They include the following:

1. Subject content. In the subject content courses, greater emphasis is given to mastery of the materialthe trainee will teach in the primary school. In mathematics, for example, students revise the conceptsof place value, fractions and decimals, and number operations. The amount of time devoted to thestudy of more advanced topics, - especially topics which students do not meet until the seniorsecondary or tertiary levels - has been considerably reduced.

2. Subject-specific pedagogy. Equally important, subject-specific pedagogy courses, which linkunderstanding of the concepts of each subject with skill in the methods of teaching them in theclassroom, have been introduced. In the previous curriculum, this essential bridge was weaklydeveloped: subject content courses were taught by subject specialists, often with little if any referenceto pedagogy; whereas pedagogy courses were taught by education specialists, often with little if anyreference to subject contexts.

The loadings given to the subject-specific pedagogy courses signal clearly the importance nowattached to them. In science and social science, the subject-specific pedagogy courses carry the samecredit-unit loading as the subject content courses; whereas in Bahasa Indonesia and mathematics, theycarry double loading (six credit units compared with three, in both subjects).

8

3. Practical teaching skills. Similarly, greater importance is now attached to the acquisition of practicalteaching skills. Teaching practice begins in Semester 111, during which trainees take part in simulatedteaching, as an integral componeitt-of most courses. In Semester IV, the focus moves out of thetraining institution into the primary schools, where trainees observe lessons on a regular basis.Semester V, which concludes the D2 program, is devoted entirely to school-based teaching practice.The trainees, divided into small groups, are attached to designated model schools - usually schoolswithin easy reach of the campus. In the model schools they rotate among the six grade levels,spending a minimum of two weeks at each level, and teaching one lesson each day. They aresupervised by class teachers from the model school - guru pemandu - and receive regular visits from aTEI tutor - dozen pembimbing.

In the model schools we visited, principals and guru pemandu were unanimous in their view that thecurrent arrangements for student teaching practice are much more effective than those they replaced.They singled out particularly the introduction of a systematic scheme for assessing teaching practice(Alat Penilian Kemampuan Guru, or APKG) as a major step forward. Furthermore, visits to the schoolby dozen pembimbing are now more regular - and more professional - than they were previously.

Curriculum and curriculum implementation issues.

Issues concerning the 1995 D2 curriculum and its implementation which emerged during the Missioninclude the following:

1. Experiential knowledge of D2 teacher educators

As we have noted, the introduction of a substantial subject-specific pedagogy component into the D2curriculum is a major step towards the development of a primary teacher education curriculum suited to thelearning needs of the trainees. However the effectiveness of the subject-specific pedagogy courses islikely to be jeopardized if the faculty members who teach them have themselves had inadequate experienceof applying in the primary school classroom the instructional approaches they advocate to the trainees.

It has long been recognized that the majority of Indonesia's teacher educators lack sufficient hands-onclassroom experience. During the late 1970s and early 1980s, when the TEls and SPGs were beingdeveloped rapidly to meet the teacher shortages brought about by massive expansion of educational access,new teacher trainers were generally recruited directly from among recent batchelors-level (SI) graduates.Practical teaching experience was not a pre-requisite.

In response to this issue, the Project made provision for teacher educators to spend time in the schoolsacquiring classroom experience. However, from the information we were able to gather during theMission, it appears that the time devoted to actual hands-on teaching was generally limited - in some cases,to no more than one or two 40-minute periods.

Primary teacher educators should be provided with opportunities to strengthen their knowledgeand understanding of primary instrctional approaches through hands-on teaching experience inthe classroom. A minimum of one month every three years is suggested

2. Subject content knowledge of D2 recruits

As we have noted, the new (1995) D2 teacher education curriculum places a great deal more emphasis onthe teaching of basic concepts - including those covered in the primary school curriculum - than did itspredecessor. Nevertheless, faculty members frequently commented to us about the low competency levelsof many D2 recruits.

The results of an informal number-skills test which we conducted with one third-semester trainee group inSulawesi Utara were certainly consistent with these perceptions. When we entered the classroom thetrainees were just completing a session on the teaching of operations with fractions - part of the

9

Mathematics Education 11 course. We asked them to arrange the following groups of numbers in order,from smallest to largest:

smiallest l... argestI. 6 2 7->

2. 1/6 1/8 1/3 i

3. 0,55 0,8 0,14 i =

Of course the trainees had no difficulties arranging the whole numbers in correct order, but the fractionsand decimals both caused problems.

Fractions. Although the trainees had just completed a lesson about operations with fractions,most of them lacked understanding of fractional values. Of the group of 36, only 11 (28%)ordered the fractions correctly from smallest to largest (1/8. . . 1/6 . . .1/3). The remaining 25(72%) reversed the order,(1/3. . .1/6... 1/8); clearly, they ignored the numerators and treated the denominators as if theywere whole numbers.

Decimals. Not a single trainee from the group of 36 ordered the three decimal numbers correctly.The commonest ordering (smallest to largest) was0,8... .0,14. . . 0,55, given by 29 students (81%). These trainees treated the decimals as if theywere whole numbers - as most of them had done with the fractions. The remaining seven traineesordered the decimal numbers0,55... 0,14. . .0,8. Interestingly, all these trainees, without exception, ordered the fractionscorrectly, suggesting strongly that they had attempted to apply a correct rule for orderingfractional values (the larger the denominator, the smaller the value) to the ordering of decimals -where, of course, it is invalid.

These and other misconceptions about number values are widespread among primary pupils, in Indonesiaas in many other countries. But if the teachers who are responsible for their instruction make the sameerrors, there is indeed little chance that the pupils will ever develop correct understanding.

Immediately after enrolment, primary teacher trainees should be given diagnostic tests of basicconcepts and skills in the main primary subjects, including in particular Bahasa Indonesia andmathematics. Depending on the results of these tests, the first several weeks of the D2 trainingprogram shozuld, where necessary, be devoted to targeted remedial work.

3. Teaching Practice.

As we have seen, the only time D2 trainees practice supervised teaching in a real classroom is during thefifth and final semester of the program - although they take part in simulated teaching during the thirdsemester and observe classroom processes during the fourth. In consequence, there are no opportunities fortrainees to draw on their classroom experiences as a source of insight to inform their study of the moretheoretical aspects of the training program. Now that the program places such heavy stress on subject-specific pedagogy, such opportunities for reflection on practice could prove most fruitful.

The possibilities of introducing classroom-based teaching practice earlier in the D2 curricutlumsequence - before the subject-specific pedagogy courses have been completed - should beexplored.

3. Developing Primary Teacher Educators

One of the main Project objectives was to strengthen the pre-service training of primary school teachers. Anew tertiary-level, five-semester primary teacher education program had been introduced in 1991, two

10

years before the Project began, but few of the available professional staff had themselves received trainingappropriate for running such a program. Hence a substantial staff development initiative was required.

These teacher educators fell into two-m-ain groups:

1. UPP (Unit Pelaksanaan Program) staff. The UPPs are the implementation units through which theD2 program is taught. They are organizationally linked to, and dependent on, the Teacher EducationInstitutions (LPTK). Virtually all full-time UPP staff are ex-Sekolah Pendidikan Guru (SPG) orSekolah Guru Orla Raga (SGO) tutors, previously involved in teaching the old primary teachereducation program, which was at the senior secondary (Grades 10-12) rather than the tertiary level.The SPG/SGO tutors were all SI graduates, and thus were formally qualified to teach at the tertiarylevel, but too few had specialized in the main primary school subjects (especially mathematics andscience) and too many in general subjects (educational administration, guidance and counselling,curriculum planning etc). To establish a more appropriate specialization profile, the Project supporteda massive in-country 'second SI degree' program for ex-SPG/SGO tutors who had become UPP staff.

2. Teacher Education Institution (LPTK) staff. Faculty members from the LPTKs were also enlistedto assist on a part-time basis in the teaching of the new D2 primary teacher education program. Thesestaff had all been involved in tertiary teacher training, but for secondary rather than primary teachers.Hence their professional development needs were different. They fell into two sub-groups:

a. Secondary subject content specialists from the subject faculties (mathematics and science,language etc) of the IKIP or (in the case of the FKIPs) university.

b. Education specialists with a secondary background, from the Faculty of Education (FIP) whowere similarly involved in the D2 PGSD program.

As set out in the Staff Appraisal Report (SAR), the objectives of the staff development component of theProject were:

a) increasing the knowledge and teaching skills of PGSD lectures,b) strengthening the capacity of in-service program developers and managers,c) building domestic capacity to train primary teacher educators,d) improving the evaluation and monitoring skills of supervising teachers,e) strengthening PGSD managerial skills, andf) providing trained technicians for PGSD (SAR, p. 14).

To achieve these objectives, the original Project plans called for II staff development programs; somedomestic, others overseas. During the early years of the Project these plans were modified in a number ofways, to render them better-suited to staff learning needs. (See Borrower's ICR, p. 2-3).

The degree programs included the in-country second-SI degree program for inappropriately-qualified UPPfaculty members which we have already mentioned; masters-level (S2) programs, both in-country andoverseas; and doctorate-level (S3) programs, again both in-country and overseas.

Achievements

The main objectives and targets of the Project as set out in the SAR were accomplished. The modificationsshowed sound adaptation as better understanding of staff development needs was achieved, partly throughpreparatory overseas exploration and dialogue with faculty members in the partner institutions in the USA,Australia and the UK. The Borrower's ICR provides details of the extent to which the quantitativeperformance indicators have been achieved. The results are impressive.

Quantitative targets:

I The second SI degree program, as already noted, was designed as a staff retraining program, forthose who had originally been tutors in the old teacher training institutions (SPGs and SGOs), and

11

whose formal academic qualifications were inappropriate for the new tertiary-level D2 program.These in-country second SI programs were offered in four institutions, all of them IKIPs:

IKIP Padang: Mathematics and science education (82 graduates)IKIP Bandung: Science and social studies education (143 graduates)IKIP Malang: Language, arts and mathematics education (148 graduates)IKIP Ujung Pandang: Mathematics and science education (91 graduates)

In terms of participant numbers, the second S I program was by far the largest staff developmentactivity undertaken by the Project, although the number of graduates achieved (464) was wellbelow the original target (700).

2. The masters-level (S2) overseas degree programs. These programs were run at six universities;three in the USA, two in Australia, and one in the UK. They were of two kinds:

a. Regular masters programs offered by the host institution, in which the Indonesian studentsjoined with local students and (in most cases) students from other countries. Sixteen studentsparticipated in these programs, and of these, ten successfully graduated and returned to theirhome institutions.

b. Customised masters programs, tailored to meet the specific learning needs of theIndonesian participants. A total of 135 students took part in these programs; of these, 132graduated successfully and returned to their home institutions.

3. Overseas doctoral (S3) programs. Twenty-four students took part in overseas doctoral programs.Of these, 17 have already graduated, and a further three were expected to graduate by the end of 1999.

4. In-country masters (S2) programs. The 99 graduates (from 100 participants) in these prgramsspecialized in the following primary education areas:

language arts education ( 19),mathematics education (19),social studies education (20),science education (19), andearly childhood development (22).

After the ternination of the Project these programs continued to operate, and some offerscholarships.

5. Non-degree programs. Teacher educators from the LPTKs who have participated in the masters-level staff development programs (overseas and in-country) have run a variety of short non-degreeprograms, mainly for UPP staff. These programs have included:

-Training in the use of the Teacher Performance Assessment Instrument (APKG) (643participants)-Training of trainers in the use of the APKG instrument (21 participants)- Training of laboratory technicians (156 participants)- Training of internet users (46 participants)

Benefits from the staff development program:

(a) Knowledge gains

Participants in the doctorate and masters-level programs who we met during the Mission all welcomedthe opportunities which had been opened to them, and had derived much professional and intellectualbenefit. The programs had enabled participants to:

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- become familiar with new thinking about different ways of dealing with knowledge content (e.g.integrated learning);- become engaged in current debates within education (e.g. the concept of emotional intelligence)- improve their teaching skills tespecially mentioned by the Head of a UPP, referring to facultymembers that had completed masters degrees in-country).

2 . The opportunity to travel overseas has been particularly appreciated, although for some, this benefithad been gained at a considerable cost to family life. Overseas students were enabled to:

- develop a comparative perspective on their work;- observe various pedagogical styles and strategies;- gain access to ideas and information from sources to which there is only limited access inIndonesia;- improve their proficiency in the use of the English language, which in turn gave them access toinformation from a wider range of sources.

(b) Other benefits

1. Material included in the customized international master's degree programs provided many ideasfor developing the in-country D2 and masters-level primary teacher education programs.

2. Many faculty members who participated in staff development activities contributed to variousprogram development initiatives, such as the improvement of the D2 and S2 curricula, and therunning of the Research Management Unit at IKIP Yoyakarta.

Issues concerning staff development

The main issues relating to the staff development component of the Project concern access to masters-level programs for UPP staff members, and utilization of LPTK staff on their return to their institution aftercompletion of masters-level or doctorate programs.

I. Access to masters-level programs for UPP faculty members.

UPP faculty members benefited from the masters-level staff development programs much less than theyshould have. Considering that it is only the UPP staff who are committed full-time to the D2 primaryteacher education program, this is a matter for concern. In the UPPs visited, less than one third of theteaching staff have completed a master in-country masters degree. The remaining two-thirds have only abatchelors-level (Sl) qualification. Further, only one UPP faculty member has undertaken a masters degreeprogram abroad.

For many UPP faculty members, a major barrier restricting access to the masters-level programs was theneed to undertake a second batchelors degree as a preliminary qualification. As we have noted, more than450 UPP staff completed second batchelors degrees during the Project. After completion of their secondSI s, the time available for undertaking masters programs was severely limited.

For those wishing to pursue a masters degree overseas, lack of competency in English was a further barrier.English was not taught as a subject in the old SPG primary teacher education program; in consequence,only a very few UPP tutors have more than a rudimentary knowledge of the language.

2. Utilization of LPTK staff after return from overseas programs.

Because of the English language barrier just noted, virtually all the recruits to the international masters anddoctorate degree programs came from among LPTK faculty members, rather than from the UPPs.

The extent to which these new masters graduates were involved in the D2 primary teacher educationprogram on their return from overseas varied considerably. Despite the evident enthusiasm of many ofthem to apply what they had learned from their overseas experience, some took no part in the D2 program,

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and others were only peripherally involved. At one TEI visited, eleven staff members, all from non-education faculties, benefited from primary teacher education masters programs overseas. None of themcurrently teach in the D2 primary teacher education program

At least three reasons contribute to this state of affairs:

First, many if not most UPPs are already heavily staffed with ex-SPG/SGO faculty members, andthus have little need to draw on staff from the mother institution, except on occasion for some of themore specialized subjects. At one of the UPPs visited, the staff:student ratio was as low as 5:1.

Second, in some cases Heads of Department in the LPTKs have apparently been unwilling torelease their more highly-qualified staff members to teach in the D2 primary teacher educationprogram. Until very recently, the majority of secondary teacher educators at most LPTKs held onlya batchelors (SI) degree, so that posession of a masters degree - particularly from an overseasuniversity - denotes a high level of qualification.

Third, perceived status differences between the primary-level and secondary-level teachereducation programs are also important in many cases. Faculty members with high-status mastersdegrees often prefer to teach on higher-status secondary teacher education programs rather than onlower-status primary programs - even if their masters qualification was specifically in the field ofprimary teacher education.

Whatever the reasons, the failure to fully utilize the expensively-acquired primary education expertise ofthe graduates of the masters-level degree programs is a major weakness of the Project.

As a matter of urgency, a rapid review of the current involvement in primary teacher education ofgraduatesfrom the Project-supported masters and doctorate-level professional developmentprograms should be carried out. The review should cover all TEls with D2 programs in theRepublic.

Based on the results of this review, strategiesfor u1tilizing morefiully the primary educationexpertise of these graduates should be devised

3. English language proficiency

The extent to which UPP staff members were debarred from taking part in the overseas professionaldevelopment programs by their lack of competency in English has already been noted. However languagedifficulties were not confined to UPP staff; they also affected recruits from other LPTK departments.Although applicants for the overseas programs were screened for their English language proficiency, andsuccessful candidates received some additional training, the general view of participants was that languagestandards were insufficient for studying overseas, and that a further intensive English language program,prior to departure, would have been beneficial. Late entrants to the programs encountered particulardifficulties.

Iffurther overseas professional development programsfor teacher educators are mounted,intensive English language instruction shoould be providedprior to departure.

1. Joint national-international masters programs

For participants in the overseas masters programs with family responsibilities (particularly women) theprospect of an extended period away from the country was often a problem. A program which includedboth within-country and overseas components would have been an attractive option for many students.

The possibilities of mountingjoint national-international professional development programs/ormasters-level students should be explored

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Three case studies illustrating contrasting effects of professional development programs are given in Box 1.They are based on observations of UPP teaching carried out during the Mission.

Box I

Contrasting effects of professional development programs: three case studies

Case 1. An UPP staff member who had been been directly trained by LPTK faculty members who studiedabroad had incorporated a range of new teaching and learning methods into his repertoire, including:

- peer teaching;- problem-solving activities with simulated "primary school students";- using appropriate experiments for primary school children;- offering constructive feedback to the student teacher and encouraging feedback from otherstudents;- using innovative techniques of classroom management.

Case 2. However, another UPP teacher with an in-country S2 degree maintained his old teaching habits.When he tried to incorporate new teaching techniques, he did it in a mechanical way without understandingtheir purpose. Clearly, exposure to new teaching methods is not, by itself, enough; opportunities to developunderstanding and skill through practice are also needed.

Case 3. Distance between theory and practice is further illustrated in a third example. In a compositionclass:

- The lecturer is located in the front of the class writing on the blackboard, or rhetorically askingquestions to the trainees. They sit passively at their desks, chanting responses mechanically.- The lecturer explains the objective of the class, and starts with a statement about expressive writingand the differences between prose and poetry.- He then goes on to explain the method that students should follow when teaching primary schoolstudents. But his 'explanation' is a list of precise instructions, relevant for technical writing but quiteinappropriate for expressive writing, either in prose or poetry.- Finally, in order to 'practice' what they 'learned' he asks them to form groups and write a poemcollectively. The students in each group copy a poem that had already been prepared by one of them.

Obviously, no learning took place in this class. Wrong messages were transmitted to the students. No onequestioned the method imposed by the teacher. The class was boring for everyone. Finally, there was evena component of 'cheating', accepted by both the students and the lecturer.

4. Building local capacity for research and development

This component of the Project focused on building local research capacity, with the specific objectives of:

(a) creating a more substantial basis for policy-making in primary teacher education and primaryteacher supply in Indonesia;

(b) promoting better understanding among LPTK lecturers of the real-world problems and conditionsof primary school teachers as a means for improving their PGSD courses; and

(c) drawing lecturers into action-oriented research partnerships with primary school principals andteachers, in order to improve classroom teaching and to solve problems related to primary schoolteachers.

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To achieve these objectives, three major sets of activities were designed and carried out:

I . Large-scale policy studies at the national level. Implementation was contracted to localLPTKs and universities.

2. Small-scale policy studies, at the local level. These studies were carried out by LPTK researchteams, typically consisting of five to eight members

3. Action-oriented research studies usually conducted by individual LPTK staff membersworking in collaboration with primary school principals and teachers.

Responsibility for the planning and implementation of Project research and development activities has beenshared between institutions and individuals.

Institutions. Responsibility for managing the large-scale national policy studies was devolved toIKIP Yogyakarta, where a Research Management Unit (RMU) was established. The team is led bythree faculty members, all of whom took part in a short-term overseas program in ResearchManagement.

A Research Quality Control Unit (RQCU) was also established at IKIP Yogyakarta. Composed ofsenior research workers and specialists from a variety of institutions (IKIPs Bandung, Yogyakarta,Malang; Gajah Mada University, the University of Indonesia, and a representative of DGHE), itsmain responsibility is to ensure the quality of the planning, implementation, and evaluation ofProject-supported research and development activities.

Individuals. The main responsibility for the small policy-oriented studies and the action researchstudies was carried by individuals and groups of individuals, located in the various LPTKs. AllLPTKs offering the D2 primary teacher education program took part.

Achievements

1. Quantitative evidence of the achievements of the Research component of the Project can be found inTables 9.1 to 9.3 of the Borrower's ICR. Seven large-scale policy studies were completed, 20 small-scale policy studies, and no fewer than 178 action research studies.

2. The seven large-scale policy studies were all contracted to tertiary institutions, as follows:

a. Primary School Effectiveness (IKIP Yogyakarta)b. Effectiveness of the D2 Primary Teacher Education Program (IKIP Bandung)c. Systems for In-service Training in Remote Areas (Open University)d. Primary Teacher Education Management (Univ. Sebelas Maret, Central Java)e. Primary Teacher Incentivesf. Primary Teacher Appointment and Placementa. Demographic Change and Primary Teacher Distribution

All these studies were completed, and research reports prepared. In several cases, summary reports werealso published in the Primary Education Research Joumal (see para 8 below).

3. LPTK staff involved in small-scale policy-oriented studies who we met during, the Mission wereenthusiastic about their work. As already noted, each study was carried out by a group of about 6 - 8research workers. In many cases, the exchange of ideas among the team members enriched theresearch culture of the institution as a whole. Research findings were disseminated through centrally-organized seminars, and through publication in journals linked to the PGSD program. Some teamsalso gave feedback to colleagues in their own institutions, through locally-organized seminars.

Box 2 outlines the approach and main findings of one small-scale policy study.

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Box 2

Sniall-scale policy oriented research:Improving the Oral Communication Skills of Elementary Teachers

The study examined the skills and capacities of teachers from different subject areas ( e.g BahasaIndonesia, mathematics) and teaching in different contexts (urban/rural) to communicate orally withchildren. The researchers found considerable variations. For example, teachers of Bahasa Indonesiacommunicated more effectively than teachers of mathematics, because of the attention they paid tolanguage itself. Teachers in urban areas appeared to be more effective than those from rural areas - partlybecause they were more likely to understand the local context as they themselves tended to come fromurban areas. Researchers offered a range of policy and practical solutions to improve the oralcommunication skills of teachers. These included the introduction of specific courses within the IKIP (todevelop oral communication skills and better understanding of pupils' background and experience) and afocus on oral communication in student teaching practice.

4. Another small-scale policy study tackled a set of serious local problems in an isolated rural area. Fourkey issues were addressed:

(a) heavy dropout rates among young children (in grades 1, 2 and 3) because of the long distancesthey have to walk to get to school;

(b) the need to prepare teacher trainees for multi-grade teaching in isolated schools with teachershortages;

(c) the need for the development of learning modules suited for use in small student groups; and(d) the need to involve parents and other community members as teacher-helpers in such learning

groups.

Box 3 gives more details.

Box 3Small-scale policy oriented research:

Modules for small groups of elementary school pupils in isolated villages

This research project attempted to demonstrate the effective use of the environment in improving the leamingachievement of young pupils and in reducing drop-out. Small groups of children (SD-KKs) were establishedin remote communities at a distance (up to three km) from their closest primary school (SD-Induk). Oneteacher from the SD-lnduk was assigned to each group. The research project trial involved seven SD-KKs inthree remote settlements: (Asah Gobleg (mountain area), Kayu Putih Melaka (dry plain) and Tembok (drybeach village). It continued for a period of two semesters.

SD-KK teachers were D-2 graduates originally from areas near the villages, who had been trained in multi-grade leaming processes and encouraged to promote community participation in supporting the small-groupinitiative.

Researchers carried out comprehensive observations of the teaching and leaming process, interviewedteachers, parents, pupils and members of the community, and tested leaming outcomes. The use of thephysical and social environment through the incorporation of people and resources from the community had apositive effect on students' attitude towards leaming. Drop-out rates were reduced by 12%.

The community favoured the continuation of the project and were ready to meet the cost of the classroomsand facilities. The study team calculated the additional costs, and presented a proposal to the localgovemment and the regional MOEC. The proposal included the training of D-2 candidates to undertake thistask and showed the benefits of the program to the completion of the 9 years of compulsory education in poorremote areas.

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Local authorities were interested and willing to carry the additional costs, but the regional authority neverresponded to the initiative.

5. Faculty members interviewed by the Mission who had taken part in action research were enthusiasticabout their projects, and demonstrated a good understanding of the theory and practice of thisapproach..

6. The action research projects focused for the most part on classroom-based problems, and in some casesthe participating LPTK lecturers had incorporated lessons leamed into their own teaching practice.Topics related to the teaching of mathematics and science were particularly popular. Box 4 gives anexample.

Box 4

Action Research: Improving the Teaching of Mathematics

The issue addressed by the study was that 4 th grade students in the schools used for teaching practice haddifficulties in understanding fractions. Classroom observations carried out by the study team, and byteachers, identified the source of the problem as the failure of teachers to build up mathematical conceptssystematically. The study team developed a phased approach to the teaching of fractions, beginning withconcrete examples and building up to theoretical concepts. Findings were disseminated through workshopswith teachers, staff seminars and a journal publication.

7. Several other action research studies addressed a related issue: how to encourage teachers to draw on arange of materials and approaches, in order to maximize learning opportunities for students. Box 5provides an example.

Box 5

Action Research: Creativity in Art and Design

The problem identified was that children were not using their creativity in art and design. A series ofstructured classroom observations were carried out by teachers and lecturers to examine why this was thecase. One conclusion was that children had limited access to a range of materials and mediums in school.Teachers and lecturers combined to develop an activity which would encourage children to draw on a rangeof materials and approaches in all stages of the process: from designing an item to making and decoratingit. This approach was used by the children to design and make small baskets, using plastic cups as the baseand covering these with varied colors and patterns.

8. The Primary Education Research Journal. A major activity undertaken by the Research Unit atIKIP Yogyakarta was the preparation and publication of the Primary Education Research Joumal(Jumal Penelitian Pendidikan Dasar). The papers drew on the findings of both the policy-orientedstudies and the action research studies. They are written in Bahasa Indonesia, but abstracts in Englishare provided.

Given that policy-oriented and action research approaches were unfamiliar to most members of theresearch teams, quality is understandably variable. The best of the papers read were innovative andinformative. One, for instance, presented observations concerning the difficulties pupils have inmastering basic number concepts, and would provide invaluable case-study material for primarymathematics education courses. Other papers were less original. In several cases, the research teams

18

seemed to have learned a sequence of steps for carrying out action research, and to have applied themwithout full understanding of their meaning.

A total of seven issues of the Jou7nal were published, with print runs of 500-1000. Copies were sent tothe 89 UPPs in the Republic, the 36 LPTKs, the three centers for masters-level primary teachereducation programs, and the National Research and Development Center (Balitbang Depdikbud).Members or the editorial team were, however, unsure as to whether funds for continued publicationwill be available, now that the Project is corning to an end.

The Primary Education Research Journal constitutes an invaluable medium through which theemerging group of teacher educators and research workers involved in the development of primaryeducation in Indonesia can maintain professional contact. Every effort should be made to identifyfunds to ensuire its continued publication after Projectfiunding has ended

Issues in policy studies and action research

1. Policy-oriented studies

It is difficult to assess the overall impact of the policy-oriented studies carried out during the Project, asmuch depends of the enthusiasm and commitment of the individuals responsible for themn. The researchteam which conducted the study outlined in Box 4, for example, pursued energetically the implementationof the project with the local administration - albeit without success. The project had achieved its primarygoal of increasing school attendance and reducing drop-out among children in isolated villages. It had beenwelcomed by parents, had generated community involvement.

It seems, however, that the level of commitment demonstrated by this team was somewhat unusual. Mostteams appear to have focussed on producing a research report, paying relatively little attention to issues ofimplementation and dissemination, and usually remaining unaware of the extent to which their researchfindings, or those of other researchers, had been utilized to shape policy or practice.

2. Action research.

Similarly, the positive impact of the action-research studies was more apparent in the teacher educationinstitutions than in the schools. Clearly, the research capacity of the participating faculty members hasbeen enhanced, and (in some cases) the content of their lectures has been enriched by experientialknowledge gained in the classroom. But in the participating schools, changes are less easy to see.

Many schools engaged in the action research with some enthusiasm. However, in most cases they appearto have treated the studies as 'one off experiments, rather than ongoing activities or approaches whichcould be integrated into their daily life.

The school which took part in the action research outlined in Box 5 was visited by a Mission member. Theprincipal spoke enthusiastically about the study, showed examples of the pupils' work and explained howshe had discussed the study with her staff. However, the examples of the students' work were kept in acupboard in the staff-room. The walls of the classrooms were bare and there was little evidence that theapproach adopted in the action research had been sustained. The study appeared to be an isolatedexperiment, remembered with some nostalgia by principal, teachers and LPTK research workers alike.

There were more extreme cases in which the school principals and (more particularly) the classroomteachers saw the action research as an imposition, whose purpose they did not understand. In one instance,a teacher regarded the research as a form of extended supervision of her classroom management, carriedout jointly by the school principal and the LPTK research worker. She had not been shown the observationschedule they had used, nor had she seen the final report.

Overall, the connection between research, policy and practice does not appear to have been a strong onewithin the PGSD Project.

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In planning future action research projects, bottom-up participatory approaches should be adopted, sothat classroom teachers and school principals are as fully involved in research design as are teachereducatorsfrom the LPTKs

Injudging the success offuture action research projects, attention should be paid to the impactproduced on practice within the participating schools, as well as to the quality of the written report

3. The use of information technology to support professional development and research.

The PGSD program provided computer packages to the UPPs. Access to these facilities appears to havebeen limited. The primary usage has been basic word-processing and limited email contact by senior staff.Both the scarcity of computers and the prohibitive cost of on-line access has meant that academic staff havebeen unable to use the rich resources of the Net. This has restricted the opportunities for staff to continuetheir development and has meant that staff who studied oversees have been unable to maintain theprofessional links which they made during their studies

2. Strengthening the management of theprimary teacher education system

This final component of the Project set out a set of objectives for the strengthening of the management ofprimary teacher education in Indonesia, both at the central government level (specifically, the DirectorateGeneral of Higher Education or DGHE), and the institutional level (the Teacher Education Institutions, orLPTKs) The changes, it was expected, would institutionalize mechanisms for soundly-based policydecision making, leading to improvements in the quality of teacher education programs.

These objectives included:

1. The establishment of a Sub-directorate for Teacher Education within DGHE;2. Carrying out a policy study on PSTE Management Reforms;3. Workshops for the co-ordination of pre-service and in-service PSTE programs; and4. Carrying out a pilot study on PGSD-PEQIP integration.

Achievements

1. Management at the central level.

The need to establish a Sub-directorate of Teacher Education within DGHE had been recognised forsome time prior to the inception of the Project. But for a variety of reasons, the achievement of this goalproved elusive during the Project period. Financial resources for setting up the sub-directorate were notavailable; and furthermore approval from BAKN, required for changes in civil service structures, was notforthcoming. The Borrower's ICR gives more details (see para 31).

It seems, however, that current developments are likely to resolve this impasse. During this Mission welearned that, as part of the major reorganization of MOEC and other ministries currently under way,agreement has been reached for the establishment of a body to take responsibility for teacher educationwithin DGHE - at the directorate, rather than the sub-directorate, level. The functions of the newDirectorate have yet to be fully specified, but clearly it will have a major role to play in setting up andimplementing a coherent set of policies for the strengthening of teacher education, at both the primary andsecondary levels.

During the course of the Project, the Central Steering Forum (Forum Pengaruh Pusat, or SPP) took anactive role in formulating policies for the more effective management of teacher education on a number ofoccasions. Perhaps most important was its initiative in setting up the targeted recruitment scheme forprimary teacher trainees. This scheme, already discussed in some detail in Section C I of this AideMemoire, established for the first time mechanisms for the joint involvement of LPTK and Pemda staff inthe recruitment of primary teacher trainees. Recruitment to the D2 program was restricted to SPG/SGOgraduates working as honorary teachers (guru honorer) in schools with teacher shortages; the trainees

20

selected were promised priority recruitment into permanent teaching positions on graduation; and generousscholarship support was provided.

This fruitful collaboration between teacher educators and local government officials in resolving localteacher supply issues is of course consonant with the wider initiative towards the devolution of manydecision-making powers to more local levels of the Govemment administration. It will be important toensure that it is maintained into the post-Project period.

2. Management at the institutional level.

During the early days of the Project, concerns were expressed as to the status of the primary teachereducation program within the formal organizational structure of the Teacher Education Institutions. Aletter from the DGHE dated . .. instructed the TEls to establish Primary Education as a Department(Jurusan) within the Faculty of Education (Fakultas Ilmu Pendidikan, or FIP). This arrangement wouldprovide the primary education program with a full-time Head (Kepala Jurusan) and an independent budget.

In many cases, however, implementation of this directive was delayed, apparently for the reason that asuitably qualified Head (with a masters or doctorate qualification) could not be identified. We enquired asto the current state of affairs in the five institutions visited during this Mission. At four of the institutions afull-time Head is now in place; while in the fifth, an appointment is expected soon. If the institutions visitedare representative of TEls throughout the Republic, this issue is now close to resolution.

3. Coordination of pre-service and in-service D2 primary teacher education programs.

During the preparation of the new D2 pre-service curriculum, a productive dialogue was developed withcolleagues at the Open University who were working at the same time on the D2 curriculum for servingteachers (D2 penyetaraan). The pre-service teams from the LPTKs benefitted from the much widerexperience of Open University staff in developing and implementing programs for teachers in remote areas.In particular, they were sensitized to the need to incorporate multigrade approaches to primary teachinginto the pre-service curriculum.

4. Management studies.

A large scale policy study of management reforms in primary teacher education was contracted to theUniversity of Sebelas Maret, Central Java, and successfully completed. However, for reasons outlined inpara 38 of the Borrowers ICR, a proposed study aimed at developing closer linkages between the pre-service D2 project and the Bank-supported PEQIP Project was never launched.

Issues and concerns

The most important matter of concern related to the management of teacher education springs from therecent change in the status of the ten IKIPs from teacher education institutions to more general universities.This change is likely to have major consequences for teacher education at both the primary and secondarylevels.

Since their inception in the 1 960s, the IKIPs have been effectively mono-technics: the degree programsthey offered fitted graduates for a single type of career - in secondary teaching only. The laterincorporation of D2 programs for primary teachers during the early 1990s did not essentially change thissituation.

During the 1970s and early 1980s, when secondary teacher shortages were acute, this focussed mandatewas, if anything, a source of strength. New students understood, when they accepted an IKIP place, thatthey were destined to become secondary teachers; and the secondary schools were assured of an annualsupply of new teaching recruits. However during the late 1980s the balance between supply and demandchanged radically: within a few years, severe shortages of secondary teachers were replaced by severesurpluses (except in a few subjects such as physics and chemistry, where the shortages persisted into the

21

1990s). At one IKIP, the chances of a new graduate being recruited as a secondary teacher had dropped toless than 2% by the early 1 990s.

In response to this crisis, the Seconda-tyTeacher Education Project, which began operation in 1994, twoyears after the Primary Project, included provision for four IKIPs to begin enquiries into the management,curriculum and budgetary implications of a possible move towards a broader institutional mandate.Students would have the option of following a general arts or science bachelors degree, as an alternative tothe traditional bachelor of education degree, thus opening to them a wider range of career choices. It wasplanned that the preliminary studies would continue for at least five years, so that the actual changes wouldtake place only after the end of the Project period - if they took place at all.

Events, however, moved much more swiftly than had been anticipated: by late 1999, all ten institutions (notjust four, as originally planned) had been formally converted from IKIPs into general universities.

The rapidity with which the changes have come about has meant that there has been insufficient time toconsider their implications for the future of teacher education programs. The central cause for concernrelates to the status of these programs within the new institutional structures. This is not of course an issuewhich is confined to Indonesia: world-wide, teacher education programs frequently rank near the bottom ofuniversity status hierarchies. They tend to attract recruits with lower scores on the selection tests; theirfaculty members tend to be less well qualified, and they often tend to be less well resourced.

In the old IKIPs, the various faculties shared a common mandate: the preparation of new teachers for theschools. The subject faculties (math and science education, language education, social science educationetc) were responsible for developing the content knowledge of the teacher trainees; while the educationfaculty was responsible for developing their professional knowledge and skills.

Within the new structures, however, the subject faculties will acquire a dual mandate. The math andscience faculty, for example, will be responsible for degree programs in pure mathematics and science, aswell as the current mathematics education and science education programs. Only the education faculty willremain dedicated exclusively to teacher preparation.

Over time, it is likely that many staff members in the subject faculties will become pure subject specialists,involved full-time in the academic degree programs and playing no part in the teacher education programs.

In these changed circumstances it will be important to ensure that the staff of the education faculty, and thestaff responsible for the teacher education courses within the subject faculties, continue to have aninfluential voice within the decision-making bodies of the institution, and do not become marginalized interms of access to financial and professional resources.

The impact of the recent conversion of the IKIPs into general universities should be monitoredcarefuilly, both at the central level by the new Directorate of Teacher Education and the CentralSteering Forun, and at the local level by the institutions themselves. It will be important to ensuire thatthe development of the non-education programs does not lead to the marginalization of the primaryand secondary teacher education programs, in terms of access tofinancial and professional resources,with consequent negative effects on the quality of the teachers produced

C. Recommendations for Sustainability

1. Teacher supply

1.1 ) In each province, a collaborative review of the effectiveness and sustainability of the targetedD2 recruitment program for SPG graduates working as guru honorer should be carried out by theLPTK and Pemda teams.

1.2) The provincial-level review of targeted D2 recruitment should include an analysis of itseffects on primary teacher distribution.

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1.3) In provinces where the review of targeted recruitment indicates that the demand for D2training from SPG graduates working as guru honorer is close to being met, new teacher traineerecruitment plans, targeting the needs of the teacher-shortage areas, should be developed.

1.4) A formula based on pupil numbers for calculating teacher needs should be developed toreplace the existing class-based formula.

2. Strengthening Primary Teacher Education Programs

2.1) Primary teacher educators should be provided with opportunities to strengthen theirknowledge and understanding of primary instructional approaches through hands-on teachingexperience in the classroom. A minimum of one month every three years is suggested.

2.2) Immediately after enrolment, primary teacher trainees should be given diagnostic tests ofbasic concepts and skills in the main primary subjects, including in particular Bahasa Indonesiaand mathematics. Depending on the results of these tests, the first several weeks of the D2training program should, where necessary, be devoted to targeted remedial work.

2.3) The possibilities of introducing classroom-based teaching practice earlier in the D2curriculum sequence - before the subject-specific pedagogy courses have been c.ompleted - shouldbe explored.

3. Developing Primary Teacher Educators

3. I) A rapid review of the current involvement in primary teacher education of graduates from theProject-supported masters and doctorate-level professional development programs should becarried out. The review should cover all TEls with D2 programs in the Republic.

3.2) Based on the results of this review, strategies for utilizing more fully the primary educationexpertise of these graduates should be devised

3.3) If further overseas professional development programs for teacher educators are mounted,intensive English language instruction should be provided prior to departure.

3.4) The possibilities of establishing joint national-international professional developmentprograms for masters-level students should be explored (to encourage more female participation inhigher degrees).

4. Building local capacity for research and development.

4.1) The Primary Education Research Journal constitutes an invaluable medium through which theemerging group of teacher educators and research workers involved in the development ofprimary education in Indonesia can maintain professional contact. Every effort should be made toidentify funds to ensure its continued publication after Project funding has ended.

4.2) In planning future action research projects, bottom-up participatory approaches should beadopted, so that classroom teachers and school principals are as fully involved in research designas are teacher educators from the LPTKs.

4.3) In judging the success of future action research projects, attention should be paid to theimpact produced on practice within the participating schools, as well as to the quality of thewritten report.

5. Strengthening the management of the primary teacher education system.

5.1) The impact of the recent conversion of the IKIPs into general universities should bemonitored carefully, both at the central level by the new Directorate of Teacher Education and the

23

Central Steering Forum, and at the local level by the institutions themselves. It will be importantto ensure that the development of the non-education programs does not lead to the marginalizationof the primary and secondary teacher education programs, in terms of access to financial andprofessional resources, with tonsequent negative effects on the quality of the teachers produced.

5.2) Coordination of pre-service and in-service primary teacher education, and the development ofstronger links to the schools is necessary to improve quality of teaching and of primary education.

5.3) An in-service program of support for new teachers should be established in coordination withthe schools in which new teachers are placed. PGSD and the Basic Education projects could workjointly towards this end. Head teachers would have an important leading role in encouraging areflective practice from the teaching staff.

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GOVERNMENT OF INDONESIA'S CONTRIBUTION

IMPLEMENTATION COMPLETION REPORT

PRIMARY SCHOOL TEACHER DEVELOPMENT PROJECT (LOAN 3496-IND)

SUMMARY

A. Statement/Evaluation of Objectives

01 Background The issuance of the MOEC decree dated December 30, 1989 reference number0854/U/1989 transferred the responsibility of the role as the provider of pre-service training of primaryschool teachers from the Directorate General of Primary and Secondary Education (DGPSE) to theDirectorate General of Higher Education (DGHE) whose responsibility had heretofore been to conduct pre-service training only for secondary school teachers. The new responsibility was taken up instantly: the firstcohort of students of the D-11 program - a 5-semester tertiary level pre-service teacher training program -arrived on the campus of the teacher training institutions in early September of 1990.

02 With this sudden additional responsibility, before the inception of the Project (i.e., Primary SchoolTeacher Development Project), the DGHE found itself not only severely handicapped by lack of experiencein primary teacher education in terms of both academic staff and curriculum, but also being in the midst ofdaunting issues and problems related to the primary school teacher supply system such as inadequatelycoordinated system for teacher supply and deployment which resulted in severe mal-distribution of primaryschool teachers across the country.

03 Therefore, beside improving the pre-service training program while discharging its usual duties, inits new role as a major stakeholder of the primary school teacher supply system, the DGHE also took theinitiative in facilitating coordination among the relevant agencies to ensure the proper handling of the issue.The Project was effective on September 22, 1992 and was initially scheduled to end on December 31, 1997.With a one-time 1.5-year extension, the Project remained at service until June 30, 1999.

04 Objectives and Components of the Project The overall objectives of the Project as stated in theStaff Appraisal Report (SAR), Report No. 1039, are to produce well-trained teachers, through a new five-semester post-secondary level teacher diploma course, appropriate in numbers and distribution. To achievethese development objectives, the Project provided relevant civil works, equipment, books and instructionalmaterials, technical assistance, staff development, and operational support for a wide array of purposes.These purposes -hereafter referred to as "components" - are (A) developing primary teacher educators, (B)strengthening pre- and in-service teacher education programs, (C) establishing a coordinated system forteacher supply and deployment, (D) building indigenous capacity for research and development (R&D) inprimary education, and (E) strengthening the management of the primary teacher education system.

05 In the Component A, for clarity and responsiveness to the changing calls for project input, threemajor modifications were made in the course of project implementation. The first modification took the formof fine-tuning of some of the short-term programs: (a) breaking down of the group of 270 participants of the3-month overseas training programs into several more task-specific categories - Research Managers (3participants), D-ll Curriculum Developers (14 participants planned, 13 participants departed), S2 CurriculumDevelopers (18 participants), Primary School Teacher Education (PSTE) In-service Trainers (100participants), and Primary School Teacher Educators (135 participants); and (b) reorganization of the 730participants of the in-country training programs for the Primary School Teacher Educators into two phases ofimplementation: a centralized phase (3 weeks, with 90 participants), and an in-house phase, with an extendedschedule and financial support from the project. This in-house training program was conducted at each of the89 UPPs (Unit Pengelola Program or Program Implementation Unit) and was attended by academic staffmembers working for the particular UPPs.

06 The second modification concerned with the Customized Master's Degree programs. Most of thecandidates were lecturers who were secondary education subject teacher educators, while the potentialprogram hosts abroad had only master's degree programs that were suitable for first degree holders that were

I

prepared as primary classroom teachers. Upon completion of these overseas programs, the retumees areexpected to play the role of primary school subject teacher educators, who are at the same time well inductedto the primary school setting. In order to accomplish this objective, a series of programmatic exploration andnegotiation were undertaken involving representatives of the six potential overseas program hosts (La Trobeand Deakin Universities in Australia, the Institute of Education and the University of London in GreatBritain, and the University of Iowa-,Ohio State University and the University of Houston in the UnitedStates) aimed at both academic program customization as well as the fulfillment of all of the requirements ofthe degrees applicable in each host institution.

07 The third modification concerned with the length of the time for some in-country trainingprograms. More specifically, the time line of some programs was shortened because the originally set periodsof time were considered too long for in-country training from the points of view of both participants andtrainers.

08 The fine tuning made during the course of implementation - some of which was mentioned in theprevious paragraphs - was made possible after lessons were productively drawn from the preparatoryoverseas resource exploration visits made by 7 two-member senior teacher educators to 26 teacher traininginstitutions in Australia, New Zealand, Japan, England and the United States. Besides exploring technicalassistance resources available in the respective institutions visited, the visits were also capitalized incongealing a conceptual framework for the various quality improvement initiatives envisaged in the newlyestablished Project. The resulting design of technical assistance integrated (a) overseas and in-countrytraining programs especially between the Overseas Customized Master's Degree Programs and the In-country S2 Programs, and (b) staff development and program development initiatives e.g. the overseas short-term fellowships and D-1l and S2 curriculum development and the running of the Research Management Unitat IKIP Yogyakarta. All of this was documented under the title of Terms of Reference for TechnicalAssistance Management Scheme, dated May 25, 1993 which further guided the planning andimplementation of the technical assistance component of the project.

09 To give a fuller picture of what has been accomplished thus far, some highlights need to be madehere which bring to the fore major achievements as results of the design modifications. The fine-tuning ofthe three-month overseas program mentioned earlier resulted in appropriately qualified staff members withmore specific job orientation consistent with the needs felt in the system. For example, to support thedevelopment objectives mandated in the SAR document, there now existed in the system the followingresources: 3 research managers (who are specifically charged with the management of the Research Centerfor the Development of Elementary Education, which is part of the major objectives of the Project); a set ofcurricula for Master's level programs in elementary education in 5 subject areas (language arts, mathematics,science, social studies, and early primary subject teaching that was later transformed into early childhoodeducation); a set of curricula for the D-ll program; 135 academic staff members with better familiarity withelementary education as result of their participation in the overseas Refresher Program for Primary SchoolTeacher Educators; 136 academic staff members who were graduates of the Overseas Customized Mastersdegree programs in Primary School Subject Teaching; and other graduates currently assuming the role asinstructors in the D-ll program in their respective institutions; and other graduates from various overseas andin-country programs-10 graduates of overseas Non-customized Masters Programs; 20 Ph.Ds graduatingfrom various universities in the USA, UK, and Australia; 99 PSTE teaching staff with an S2 degree from thedomestic S2 Program in Primary School Subject Teaching in five different focus subjects; and 464 staffmembers with a Second SI degree from the domestic St programs in Elementary Education ( inmathematics, science, social science, and language arts). In addition to this long list of achievement, thefollowing five different types of training had also produced graduates: supervising teachers 'and collegesupervisors (15 days, 1591 participants), laboratory technicians (2 months, 156 participants), internet users (Iweek, 46 participants), trainers of APKG (Teacher Performance Assessment Instrument, for I week with 21participants), utilization of the APKG (I week, 643 participants).

10 In the Component B, to accomplish the development objectives specified in the SAR document(i.e., "Strengthening Primary Teacher Education Programs" by way of improving their curricula, developingeffective teaching and assessment strategies, and providing appropriate field-tested learning materials),relevant enabling activities were designed and carried out: dormitories were built and other educationalfacilities developed and/or made available. More specifically, major achievements of this project componentinclude (a) improvement of D-11 curriculum by incorporating the Developmentally Appropriate Practice,

2

reducing the excessive number of scheduled activities in order to allow more independent exploration anddigestion by students, and coupled with provision of other support materials to facilitate programimplementation such as manuals (for the curriculum, field experience, and integrated teaching-learningprocesses), handouts, samples of syllabi, textbooks, and a series of training sessions to update staff members

knowledge and skills in using the novel instructional approach to elementary school teaching; (b)development of a new set of S2 curmicula in five focus subjects (i.e., mathematics education, language arts

education, science education, social studies education, and early childhood education) together withsupporting materials and activities similar to what is made available and held for the implementation of theD-11 curriculum; and (c) establishment of 43 dormitories to help accommodate those D-ll program

participants coming from areas located far away from the location where the program is offered andprovision of equipment (for teaching and lab work) and other educational facilities (e.g., science kit, and

internet access).

II In the Component C, whose development objectives include (a) teacher candidates recruited innumbers and locations appropriate to local needs, and (b) teacher education graduates are made aware ofvacancies, and able to find teaching jobs and placed in locations where they are needed, the Project hassuccessfully established formal, inter-agency working forums and carried out important coordinated meetingswhich resulted in a promising mechanism to ensure more equitable recruitment, appointment and deploymentof elementary school teachers across the country. More specifically, among the Project's majorachievements in this project component is the re-activation of (a) the Central Steering Forum which canaddress in a coordinated and systemic way issues and problems related to the recruitment, appointment, anddeployment of elementary school teachers across the country, (b) the Joint Secretariat which can serve thefunction of some kind of a clearing house that conducts inventories of problems and issues being felt andvoiced by the concerned agencies, analyze the problems and package them into formats which shouldfacilitate decision-making by the Central Steering Forum, (c) the Working Team which assists the JointSecretariat in addressing the various issues in the teacher supply system at a more administrative, technicallevel with day-to-day staff work provided by a specially established Task Force, and (d) the provision ofscholarship support for pemda-nominated teacher trainees in remote areas to ensure that these often-avoidedareas are taken care of.

12 In the Component D, which focuses on building research and development capacity with thespecific objectives of (a) creating a rational basis for policy-making in primary teacher education anddistribution in Indonesia; (b) promoting better understanding among LPTK lecturers of the real-worldproblems and conditions of primary school teachers as a means for improving their PGSD courses; and (c)drawing lecturers into action-oriented research partnerships with primary school teachers and administratorsin order to improve classroom teaching and to solve problems related to primary school teachers, three majoractivities were designed and carried out: (I) Large-scale Policy Studies at the national level whoseimplementation was contracted to local institutions, (2) Small Grants Program for LPTK research teams; and(3) Action-oriented Research Studies conducted by LPTK academic staff in collaboration with their primaryschool teachers counterparts.

13 In the course of project implementation, as a response to changing calls for project input in thefield and with approval from the Bank, some modifications - especially in the form of specific targets ofindividual activities - were made. Presented here are activities and achievements of this project component.(a) The establishment of a Research Management Unit (RMU) at IKIP Yogyakarta whose specificresponsibility is to manage research and development activities carried out under the Project; (b) Theformation of a Research Quality Control Unit (RQCU) to ensure the quality of the planning, implementation,and produwts of the research and development activities carried out under the Project with a panel of seniorresearchers and specialists in different disciplines from IKIPs Bandung, Yogyakarta, and Malang, theUniversities of Gajahmada and Indonesia, and a representative of DGHE, (c) the conduct of seveninterrelated large-scale policy studies various by bodies external to the Project to address a wide array ofissues and problems related to elementary school teachers in the country and the impacts of the reform efforts

initiated by the Project together with the conduct of a series of follow-up activities to the findings andrecommendations of these seven large-scale policy studies; and (d) the improvement of LPTK lecturers'understanding of the real-world problems and conditions of primary school teachers by drawing those LPTKlecturers into action-oriented research partnership with primary school teachers and administrators in order toimprove both PGSD courses and classroom teaching.

3

14 In the Component E, which is in the SAR document called "Strengthening the Management ofPrimary Teacher Education System" with an overall objective of strengthening management structures andprocedures at both the central (DGHE) and campus (LPTK) levels., a number of major activities were carriedout with the following performnance indicators (a) progress in establishing a Sub-directorate for TeacherEducation; (b) completion and quality (according to expert opinion) of study on PGSD ManagementReforms; (c) the number of PGSD maniagers successfully completing management training; (d) the impact ofPGSD management reforms (in terrns of improved organizational management and instructional quality); (e)the completion of workshops for the co-ordination of pre-service and in-service PGSD; (f) the completion ofa pilot study on PGSD-PEQIP integration; and (g) the completion of preparations for future projects(secondary teacher education; second phase of primary teacher education).

15 The establishment of a sub-directorate in a ministry amounts to a most complex enterprise as itinvolves not only technical matters which can be resolved mainly by convincing data and logical persuasion,but it also requires the political mood and will of the top decision makers. Even these ingredients are notsufficient. Because of the consequent financial ramifications, the realization of this effort requires thesupport of other agencies, such as the Ministry of the Utilization of State Apparatus (MENPAN). Whatfollows are some examples. First of all, before the inception of this Project, through a letter dated March 22,1990 (Ref. No. 1420/D/90), the Director General of Higher Education brought to the attention of the Ministerof Education and Culture this urgent need for the establishment of a sub-directorate whose specific job is tomanage teacher education. Receiving no response, a second attempt was made in 1994. Through this Project,the proposal was renewed by sending another letter, which was signed by the Director General of HigherEducation and addressed directly to the Minister of Education and Culture (Ref.No. 5691/D/T1994 datedDecember 22, 1994), also without any signs of encouraging response. Therefore, the Project has then takenthe initiative to "reactivate" and support the sustained function of the Central Steering Forum, the JointSecretariat, and the Working Team of the Coordination Forums for the System for the Provision andDevelopment Educational Manpower (SPPP-TK) at the central as well as province (DATI-1) and District(DATI-II) levels. Additionally, the Project - on behalf of DGHE - has also served as a "facilitator" to theissuance a MOEC Decree for "The Provision of Primary School Teachers" (dated July 12, 1999 number157/P/1999) and of the Secretary General in his capacity as Coordinator of the Central Steering Forum (datedJune 30, 1999 number 042618/A.A6/HK/1999) establishing the Task Force that shall attend to the day-to-daytasks of the Joint Secretariat. All of this is to assist DGHE in addressing the issues and problems related tothe provision of primary (and secondary) school teachers since, as it were, the current organizationalstructure of the DGHE had apparently not been designed to undertake such a comprehensive task. In otherwords, the organizational structure of DGHE is such that each directorate only addresses so-called functionaldimensions in the management of higher education institutions e.g. academic affairs, student affairs, researchand public service that cut across institutions.

16 Contracted to and conducted by FKIP Universitas Sebelas Maret at Surakarta, the study on PGSDmanagement reforms provided empirical evidence of the impacts of the Project's input on the management.For instance, the policy recommendations drawn from the study provides a support to the idea of establishingone single structural working unit which can take a full responsibility in facilitating the management of theelementary school teacher supply system that involves many agencies and some are even outside of theMOEC each seemingly with its own agenda: pre-service training, appointment and placement, utilization andin-service care.

17 For the Component E, Overseas Training on educational management was conducted for PGSDmanagers (38 participants). And ninety (90) others completed in-country training program. Using acomparative framework, the overseas-trained group of 38 managers focused their study on searching forideas and program features for possible adaptation to Indonesian context. While the in-country-trained groupwere more attuned to the programmatic needs of the UPPs, including the anticipation of the in-houseactivities that are expected to "keep things going" at the institutional level.

18 As mandated by the SAR, a study on impacts of PGSD Management Reforms (in terms ofimproved organizational management and instructional quality) was also carried out. While impacts of thereform efforts might have been felt (or even driving some working mechanism) on different spheres such aspolitical, bureaucratic and social - each with a different timeline, suffice it now to say that the following havebeen evidenced: (a) The 1995 D-ll Curriculum is in place, sustaining the offering of the D-ll program in allLPTKs; (b) a number of SPG and SGO buildings have been "converted into" PGSD UPPs; (c) a number of

4

qualified SPG/SGO teachers have been admitted into LPTK faculty; (d) learning-teaching processes havebeen taking place in each of the UPPs since September 1990; (e) different levels of mutual leaming throughacademic and social processes have taken place between "old" LPTK academic staff and those formerSPG/SGO teachers who have now been admitted into the LPTK academic circle as well as between academicstaff who had been exposed to overseas experiences and those who had not; (f) the S2 programs inelementary education are in place-in 3 LPTK Graduate Schools with different foci (IKIP Malang forMathematics and Language Teaching, IKIP Jakarta for Lower Primary Subjects Teaching, and IKIP Bandungfor Science and Social Studies Teaching); (g) a series of overseas and in-country training programs which areintended to bring about desired changes have been conducted; and (h) provision of facilities in various forms.All of this series of project inputs should impact on how these colleagues think and work, especially in theway they perceive elementary education and how they can contribute to the development of this previously-taken-for-granted field of profession.

19 Additionally, a series of workshops for the Coordination of Pre-service and In-service PGSD havebeen carried out. To ensure the achievement of the development objective of this project component,multiple modes of coordination have been carried out which should lead to a better coordination between pre-service and in-service programs of PGSD. As an illustrative example, the following account can serve as aset of evidence.

(a) The revised D-11 Curriculum - known as the 1995 D-ll PGSD Curriculum - had been instituted; theimplementation of the revised curriculum was started in September 1995, which is the beginning ofIndonesia's academic calendar, five months after the final draft of the curriculum itself was completed.

(b) During the D-11 curriculum revision process, invaluable input was drawn from various parties mostnoteworthy being that which was provided by representatives from the Open University. Capitalizingupon insights gleaned from a much richer field background including experiences from elementaryschools in remote areas with almost unimaginable conditions, their proposal to include multi-groupand/or multi-grade teaching in the D-ll pre-service program was gratefully adopted.

(c) The program monitoring exercises being launched by the Project consistently contained pre-service andin-service elements, which should provide a natural context for interaction.

(d) The relevant senior academic staff of the Project who have been instrumental in the development of thepre-service D-l1 Curriculum were also involved in the process of the revision of the in-service D-l1program curriculum and its associated instructional modules.

20 One important note should be made here which explains why A Pilot Sriu4d on PGSD-PEQIPIntegration, which is mandated by the SAR, could not be realized. Despite its noble intentions, bureaucraticbarriers precluded the Project to embark upon this area of activities. Although mainly concentrating on theSMPs, in the same line it is also interesting to note at this point that a flurry of Basic Edzucation Projects havebeen incepted in the last few months. Directly addressing problems of in-service professional support ofserving teachers at the provincial level, they did not seem to have involved pre-service teacher traininginstitutions that would allow desirable interaction and cross-fertilization between the two, and thushampering sustainable development of both.

21 Another important explanation should be presented here with regard to the SAR-mandatedPreparations for Future Projects (Secondary Teacher Education; Second Phase of Primary TeacherEducation). Two initiatives should be elaborated on here. First, using internal funds since the Governmentdid not approve the utilization of loan proceeds, the Project supported one of the preparatory studies for theSecondary Teacher Development Project. Secondly, preparation of a proposal for the Second Phase of PSTDwas included in the 1996/1997 fiscal year DIP. A 6-month foreign consultation service was also to have beeninvested for this purpose. However, beyond the Project's control, BAPPENAS declined to approve it. Forfinancial support, it suggested the exploration of a JGF support, however, it turned out to developing intosome kind of a chicken-and-egg argument and therefore it did not get anywhere.

B. Achievement of Objectives

22 The Project as originally designed rested on the assumption that - by conservatively setting theannual intake at 7,000 as against the annual average retirement rate of approximately 15,000, the D-llprogram graduates would easily be absorbed by the schools in the various provinces which are short of

5

teachers. However, although for the first cohort of graduates the absorption rate was about 91%, for thesubsequent cohorts the rates sharply declined (down to 72%, 58%, 52%, 27% and 9,3%). Obviously, thislow rate of appointment of the project D-ll program graduates caused a great concern to the Project inparticular and the DGHE in general, who are charged with the task of providing support to LPTK programswhich produce elementary school teachers under the new five-semester post-secondary program.

23 One major cause for this low graduate absorption rate is the preference of the local authorities tohire SPG graduates who then served as guru wiyata bakti or honorary teachers. Although the figures werenot firm - and later on in some areas the claimed numbers even fluctuated rather wildly - at the time whenthe SPGs and SGOs were phased out at the end of 1989 as a consequence of the Ministerial decree of theMOEC mentioned earlier, reportedly there existed about 250,000 SPG graduates some of whom were thenrendering "voluntary" service in elementary schools in different places, in the hope that they would be hiredas civil servants in the near future. This was not addressed during project preparation.

24 Lest it created the wrong picture, some clarification is required at this point. Before the phase out,there existed 209 public SPGs and 55 SGOs along with 400 private SPGs with an annual output ofapproximately 70,000 and an average absorption rate of between 10 - 15%. Therefore, this situation of grossimbalance between supply and demand had apparently created opportunities for less-than-entirely-transparentpractices in the recruitment of new primary school teachers. However, in order to present a fair picture of thesituation, it should also be noted that graduate mobilization has indeed been generally low perhaps to a largeextent due to low financial promises. The requirement of cultural compatibility between the newly appointedteachers and the local community especially for the lower grades would be another factor that hampers freegraduate appointment and placement that might have been more of the rule in many other areas ofemployment.

25 Consequently, despite positive actions that had been taken by the Ministry of Education andCulture (MOEC), the Civil Service Agency (BAKN), and the Ministry of Utilization of State Apparatus(MENPAN) through the Central Coordination Forum, unless the relevant factors stated earlier are taken intoconsideration, the employment prospects of the D-ll program graduates remained uncertain. Therefore, inorder to respond to the changing calls for the Project's contribution in the provision of primary schoolteachers, during the midterm review of the Project in April 1966, both the government of Indonesia and theBank Review Mission agreed to make a "strategy redirection"-that is, shifting the emphasis from only thestrive for quality pre-service training to also include pro-active strategy for maximum graduate absorptionthrough targeted recruitment.

26 During this midterm review, the project's performance indicators listed in SAR were reviewed vis-&-vis the project objectives, components, inputs, outputs, and outcomes. This resulted in the "retrofitting" ofkey performance indicators to each project objective. Other smaller-scale adjustments in the form of specificobjectives were made in the course of project implementation. A few good examples for this need-drivenmodification could be cited: the linking between Overseas Customized master's degree and the In-country S2programs, the re-direction from sole emphasis on quality pre-service training to the inclusion of targetedrecruitment, the addition of 178 classroom-based action research studies which also resulted in better LPTK-school linkage, although these were not explicitly programmed in the SAR. In other words, in most cases,then, the modifications of design were made in an attempt to best respond to the changing calls for Projectinputs.

27 Using the "retrofitted" key performance indicators to assess the Project's relative success inachieving its mandated goals, one would come to a conclusion that except for a couple of program itemswhich failed to win the necessary support from the related national agencies in whose hands the approval toimplement the programs rests (e.g., a pilot study on PGSD-PEQIP integration, preparations for futureprojects, and establishment of a new sub-directorate within DGHE), all of the programmed activities werecarried out as planned. In some cases, the specific modified targets of individual programs even exceededthe number originally set out for the programs (e.g., classroom action research; creation of the S2 curricula,and some guide lines). As these achievements resulted from some modifications of the original design (i.e.,SAR version), the successes clearly are attributable to productive collaboration between the Bank on the onehand, and the Project leaders and the government on the other. More specifically, represented by the ReviewMission teams, the Bank seemed to have seen the stipulations in the SAR document in a more user-sensitive

6

stance. For their part, capitalizing upon its intellectual resources, the Project was bold in its exploration foropportunities that would more productively serve the attainment of project objectives.

C. Major Factors Affecting the Project

28 Numerous factors have atfected the implementation of the Project both in supportive as well asdis-empowering manner. Some of these contributing and/or decisive factors are under the control of theProject, some others are under those agencies external to the Project, such as BAPPENAS, and the WorldBank. To cite only a few, some contextual forces and/or conditions, which have favorably and unfavorablyaffected the Project, were as the following.

(a) Managerially, the primary school teacher supply system could best be described as an anomaly. On theone hand, centralization has been the powerful underlying spirit, however, careful observation would inmany cases inescapably project the impression that in practice each seems to be doing his/her ownthing. Academically, the formal primary school curriculum has been established at the national level. Itis only for the 1994 curriculum - actually officially decreed on February 23, 1993 through the MOECdecree number 060/U/1993 - was what has since been known as "local content" was first introduced.However, its implementation has been anything but reflecting nationally standardized practices.Managerially, teacher allocation has been determined at the national level, with the BAKN serving assome kind of a watchdog. On the other, the defacto autonomy was everywhere for everyone to see -the district-level authorities to appoint and transfer teachers have not been accompanied by theassociated accountability to ensure that they were equitably distributed, resulting in great disparity, notto mention the out-of-control practice to appoint the so-called wiyata bakti teachers. It is this anomalythat greatly hampered the absorption of the D-11 graduates after the first cohort mentioned in earlier.

(b) On the other hand, the idea of "regional and institutional autonomy" seemed to have offered anopportunity for improvement both academically and managerially. Academically, as the central-levelauthority. DGHE could relinquish part of its fDrmer all-inclusive academic responsibilities and rights tothe LPTK level and concentrate on coordination and accountability issues at the national level. In thisway, more local-need-sensitive programs could be developed and more concerted efforts could beinitiated with respect to quality assurance. In other words, academically there should be a mechanismthat represents an interface between institutional autonomy and systemic accountability. From themanagerial point of view, despite the relevant laws on regional autonomy (i.e. public laws number51/1951 and number 05/1974), living through the atmosphere under the centralized system for the pastfive decades or so, it seemed that has never crossed one's mind that the idea of granting a greateramount of authority to lower-level agencies would be possible or useful. Now that the spirit of regionalautonomy has been well underway - in fact a brand new public law (dated May 7, 1999 number 2/1999)on regional govemment had been enacted most recently - it would therefore be most opportune to muchmore carefully and responsibly defined district-level autonomy by appropriately linking authorities andaccountability. The "strategy redirection" that was agreed upon between the Review Mission and theGovernment during the mid-term review in April 1996 that subsequently bore the scheme of targetedrecruitment that deeply involved the district-level authorities indeed represented an initiative that is inline with the reform movement in the country. However, in view of the low mobility of the D-11graduates and the relatively low economic resources of their parents, it remains to be seen how muchthe regional governments would match their wider authorities with higher commitment in supportingtheir teacher candidate nominees by providing the necessary scholarships.

(c) From a more administrative point of few, the restructuring of authorities at the World Bank also seemedto have significantly impacted project management, and consequently, the attainment of Projectobjectives. From what have been told, the granting of more autonomy to the RSI was reportedlyintended to allow more expeditious administrative processes by shortening the administrative distancebetween the borrower and the Bank e.g. in the issuance of the required No Objection Letters. A numberof examples that apparently did not bear the desired fruition could be mentioned.

i) The first example was the discussion on the criteria for Single Source Selection procedure relatedto the already approved package of Classroom Action Research. A more user-sensitive approachwould have salvaged that the initiative that promised a lot of grass-root user benefits.

ii) A second example is the sluggish process of the issuance of the Bank's "No Objection Letter"(NOL) that had effectively killed the Overseas Comparative Study that had already been approvedduring one of earlier Review Mission visits.

7

iii) A third example was the mis-procurement of commercially published library books. Whileadmittedly the Project had taken a wrong procedural step, the procurement of the badly neededreference materials would have been salvaged, had some kind of an early warning was madebefore January 15, 1999. Parenthetically, the bidding document was approved on September 17,1998, and a request for a NOL for award was submitted on December 3, 1998. After many formaland informal interactions,-it was only on March 4, 1999 that the RSI recommended re-tenderingwhich obviously precluded any appropriate corrective measure.

iv) And a fourth example was the mixing up of the funding categories between the overseasfellowships program for the proposed Overseas Comparative Study mentioned earlier and thealready approved in-country scholarships that threatened to cancel the full support for the secondcohort of the D-ll awardees in the last few days of the Project term.

(d) The implementation of the policy of wider mandate formally initiated within the Secondary TeacherDevelopment Project (Proyek Pengembangan Guru Sekolah Menengah, PGSM) had developed a newtwist along its processes of unfolding. First of all, due to an unfortunate semantic slip, it had beenknown as institutional conversion - from teacher training institutions into universities - which haddiverted attention from evolution of institutional processes and their associated organizational structureto instantaneous change of labels. Secondly, judging from the experiences with the Faculties ofEducation and Teacher Training (Fakultas Keguruan dan l1mu Pendidikan, FKIP) that are parts ofuniversities in the country, the teacher training programs run the real risk of becoming more and moremarginalized in the newly converted LPTKs. Consequently, unless more concerted efforts are exertedwith and/or through the Secondary Teacher Development Project in the dimension of organizationaldevelopment, the converted IKIPs could lose their effectiveness in operating and continuouslyimproving their teacher training programs, both secondary as well as primary.

D. Project Sustainability

29 Inherent to the Project design is the idea of institutional empowerment. That is, the input providedby the Project was intended to serve as a jump-start to set into motion some reform efforts which, uponcompletion of the Project, should be taken up by its beneficiaries in a more sustained manner. In this way,sustained self-institutional development can be exercised by LPTKs both as a collective as well as individual,independent institutions.

30 The sustainability of impacts - both academically as well as managerially - of the various kinds ofactivities being initiated and/or inputs invested by the Project can be seen in what follows:

(a) The D-ll curriculum - which was assigned to the Project to further fine tune - is now in place;

(b) Together with the associated academic staff and educational facilities and equipment, the set of projectinputs aimed at the enhancement of D-ll primary school teacher pre-service training program, has nowbeen implemented for a number of years. Obviously, further refinement is required as the years passby, however, the necessary "capital" especially in the forms of human resources and institutionalprocesses are already there.

(c) The S2 curriculum, which was developed by the Project's more focused short-term program returneesdespite the fact that it was not required by the SAR, has by now been in use for several years.Spearheaded by the 18 S2 Curriculum Developers who collaborated with Overseas CustomizedMaster's Degree Program host institution representatives, and later on joined by the master's anddoctoral degree program returnees sponsored by the Project, the S2 program in elementary subjecteducation has established its niche within the LPTKs, ensuring indigenous sources of primary schoolteacher educators.

(d) Although it might not be instantly obvious to outsiders, the classroom-based action research - whichwas collaboratively carried out by LPTK staff members and their classroom-teacher counterparts - hasresulted in by-products which seem to be sustainable. That is, although the original target was the D-1lacademic staff, however, classroom-based action research as a mode of academic inquiry is gaining anincreasingly wider acceptance among the in-country S-2 program participants and lecturers as well asthe elementary school teachers. Furthermore, the relationship between academic staff members ofLPTKs and their classroom-teacher counterparts has reportedly been increasingly positive as the timepasses by, leading to a better LPTK-School linkage even though it was not formally established as aProject objective.

8

(e) Despite somewhat disappointing results and expressed doubts in the beginning, the Central SteeringCommittee, and Regional Coordination Forum at the provincial (Dati-1) and district (Dati-l1) levelsseemed to have shown a heartening progress. At the central level the coordinating forum has managedto serve useful liaison and clearing house functions that allow the various agencies-- some of which areoutside of the MOEC-- to collaboratively and therefore more effectively address problems and issues ofthe teacher supply system. ALso boosted by the strong movement toward regional autonomy, themechanism of targeted recruitment that directly involves the LPTKs and the user agency counterpartsmainly the provincial and district level authorities has also seemed to have borne gratifying results.

E. Bank Performance

31 Overall the Project is satisfied with the assistance and support provided by the Bank. The Projectgrafully acknowledges the serious efforts made by the Bank staff (e.g., supervision missions) in assisting itwith the implementation of the Project's planned programs. This helpful stance of the Bank staff was mostnoticeable in the case when the mid-term review was carried out, which later resulted in "redirection" of theproject design. Another impressive way the Bank staff assisted the Project was their flexibility in seeing theSAR vis-a-vis the emerging needs felt in the field. The way the Bank staff presented themselves to theProject could be characterized as user-sensitive.

32 Among the many favorable notes, however, there has been a less-than-satisfactory supports. Thatis, the function of the RSI office - which now has a greater authority than it had before - has tended to slowprocedures down rather than speed them up. For a number of specific cases, see section C.

F. Assessment of Outcomes

33 Except for certain program items which failed to win the necessary support from the relatednational-level agencies in whose hand the approval to implement the programs rests (e.g., a pilot study onPGSD-PEQIP integration, preparations for future projects, and establishment of a new sub-directorate withinDGHE) and the programs whose proposals did not get timely favorable or corrective responses for theirimplementation from the RSI (e.g., overseas comparative study on institutional transformation andprocurement of commercially published library books), all of the programmed activities were carried out asplanned. In some cases, the specific modified targets of individual programs had even exceeded the numberoriginally set out for the programs (e.g., classroom action research; creation of the S2 curricula, and someguidelines). As these achievements resulted from some modifications of the original design (i.e., SARversion), the successes clearly are attributable to productive collaboration between the Bank on the one hand,and the Project leaders and the government on the other. More specifically, represented by the ReviewMission teams, the Bank seemed to have seen the stipulations in the SAR document in a more user-sensitivestance. For their part, capitalizing upon its intellectual resources, the Project was bold in its exploration foropportunities that would more productively serve the attainment of project objectives.

G. Future Operation

34 Consistent with the Project's grand design which has incorporated the spirit of "sustainabledevelopmenf', the impacts of the Project inputs are expected to last long enough to trigger inner-mechanismsin the Project's beneficiaries to augment the impacts by incorporating the activities and resources into theirroutine scheme supported by their own recurrent budget so that the development efforts made during the lifeof this project could be sustained.

35 In a more systematic way, some plans have been developed which should ensure continuity of themanagement of certain reform efforts, which have been initiated by the Project. These planned futureoperations take various forms, including the following.

(a) At the central level, the Project support the reactivation of the coordinated system for elementary schoolteacher recruitment, appointment, and deployment originally stipulated through the MOEC decree no.0461/U/1990 dated July 28, 1990. Through this decree the "Central Steering Forum", "JointSecretariaf', and "Working Team" have been drawn into the processes of jointly identifying problemsencountered and negotiating solutions in the efforts to implement the teacher supply system.

9

(b) Failing to win the necessary supports to establish a distinct organizational unit within the DGHE thatwould be charged with the responsibilities to attend the day-to-day businesses of the teachers supplysystem and therefore provide the required staff work for the Central Steering Forum, as the Coordinatorof the Central Steering Forum, the Secretary General decreed the establishment of a standing TaskForce within DGHE (see Para. 27.e).

(c) At the regional level, the MOEC-decree dated July 12, 1999 number 1571P/1999 mentioned in Para. 14,specifically stipulates how elementary school teachers should be recruited, appointed and thendeployed. With controlled intake through targeted recruitment, the said MOEC decree also stipulatesthat D-I1 program graduates shall not be required to sit in civil service selection examination as was inthe traditional procedure, because the selection assessment has been incorporated into the pre-servicetraining curriculum. Not unlike the case of the so-called service training programs (pendidikankedinasan) of certain ministries e.g. Home Affairs, Finance and the Armed Forces, this built-inselection mechanism exempted the D-I1 program graduates from sitting for the traditional civil serviceentrance examination that has been sometimes fraught with in-transparent practices.

H. Key Lessons Learned

36 Experiences from long years of the Project implementation have brought to the Project leaders'conscious attention some positive and negative lessons in a variety of magnitudes and degrees of importance.Some of the most notable lessons learned can be described as follows.

(a) Public service versus market-driven endeavors

Teacher training, particularly primary teacher training, is mainly a public service due to the lowfinancial promises. In other words, the private sector is not likely to invest in this area, except perhapsin the limited scale of what might be best characterized as expensive schools. On the other hand, withthe high stake in human resources development, the government could not simply "leave the market".This means that the government should be prepared to loose some money in managing the teachersupply system. Obviously, this does not mean that primary school teacher education operation anddevelopment should not strive for efficiency. On the contrary, a lot could and should be done in thisdimension.

(b) Flzuid versus rigid directness

Obviously sound planning is imperative for large and complex endeavors such as the Primary TeacherDevelopment Project. Furthermore, different from projects that focus on the construction of physicalstructures whose planning and design should be set firmly before implementation, quality improvementefforts in education should be ready to expect the unexpected. Examples abound during the course ofthis Project on the unfolding of events that required on-going adjustments, both academic as well asmanagerial. The breaking down of the bulk of overseas 3-month into more task-focused programsstated in Para. 5 and the customization of the major portion of the overseas master's degree programpackage and their linkage to the domestic S2 program for primary subject teacher education outlined inPara. 6 could be cited on this line that are more academic in nature. While the redirection towardtargeted recruitment with its associated measures (working mechanism that deeply involve provincial-and district-level, the raising of scholarship rates to facilitate honorary teachers from the remote areas tojoin the D-11 program, the inclusion of civil service entrance test into the pre-service program) are a fewof the user-sensitive adjustments that were more managerial in nature.

(c) Centralised verszus delegated decision making processes

The events in decision-making processes also offered valuable lessons. For about 5 decades sinceindependence the country has been cultured in tightly centralized mode of thinking. And with thereform movement that was most significantly signaled by the succumbing of the then presidentSoeharto, the pendulum seemed to have swung to the other pole. However, as shown by ourexperiences in the Project, in order to be successful in making any significant contribution to theenhancement of the teacher supply system, political support from the central as well as regionalauthorities is an imperative ingredient. That is, both the Central Steering Forum and the CoordinationForums at the district and provincial levels play their unique and complementary roles.

(d) Substantive versus managerial leaderships

In order to forge the various inputs into a set of coherent and fruitful initiatives, the implementation ofcomplex quality improvement investments like the Primary Teacher Development Project require

10

substantive as well as managerial leaderships. As has been pointed out earlier, teacher training,particularly primary teacher training, is mainly a public service. While managerial leadership seems tobe obvious, the issue of substantive leadership perhaps require some elaboration. In the last few years,within the DGHE there exist projects that have been more or less aimed at providing the necessarycoffers to support quality improvement initiatives. Other than generic landmarks that are academic innature such as relevance and academic atmosphere, the substance is pretty much wide open so thatmanagerial leadership is required more than substantive (or academic) leadership i.e. serving thefunction of gate-keepers. The situation is vastly different when one is dealing with investments in areasthat are unitary in nature, such as teacher training (or, if one wishes, to be enlarged into the teachersupply system). In this last category of projects, productive (and imperative!) inter-linking among thevarious inputs could only be successfully accomplished if the leadership of the projects possesses afairly clear vision on the future direction desired of the area.

(e) Project-based initiatives versus routine program activities

As one of the project-based initiatives in the various areas of development in the country, the substantialinvestment made through the Primary Teacher Development Project is aimed at building a critical massof institutional resources so that primary teacher education operation and continuous development couldbe sustained. Firstly, this means that the set of project inputs to be provided should be viewed, plannedand implemented in some coherent manner, requiring more systemic rather than fragmentizedapproaches. Finally, measures ought to be taken at the outset in order to ensure not only acceptabilitybut also ownership of the novel initiatives by the project beneficiaries. Among the various aspects ofthe project mission, this could be the hardest to work on.

(f) Academic versus organizational development

Although not programmed in the SAR, like the wider-mandate policy which was initially spawnedwithin the secondary school teacher education program charged to the Secondary Teacher DevelopmentProject (Proyek PGSM, loan 3979-IND), institutional transformation has emerged also as a crucial issuewith regards to the primary school teacher education program, in this case the D-lt PGSD. Staff andprogram development efforts initiated through the Project has come to productive fruition. However,these valuable resources obtained through expensive investment has not been properly housed withinthe LPTKs, both before and especially after the institutional conversion - nay, the change of labels -that is currently being vigorously pursued had been completed. An opportunity to involve key LPTKacademic personnel in exploring similar experiences abroad through an overseas comparative study thatcould further stimulate thinking and actions toward effective institutional transformation reflected in therestructuring of academic resources to ensure better utilization, and the necessary adjustments inpriority setting and decision making processes to ensure the continued "iprotection" of the teachertraining programs vis-a-vis the forthcoming multi-mission institutional set-up created through theimplementation of the policy of wider mandate, had been lost due to bureaucratic snags in the requiredprocesses of approvals.

II

Table 1: Staff Development (Distribution of Training Program Participants)

Original Distribution (SAR. Annex 5) Modified Distribution RealizationNo. .. . Target 'I'arget Number of Duration In- Completed Shortage Remarks

Programs Number of' Duration Programs Number of Duration Participants Program-Participants Participants

_=__ .__________ ______ I. .VRSA _ ___ ___ __

- 1. OVERSEAS 1. OVERSEAS _

I PSTE Development & Management 16 t PSTE Resource Exploration 16 _ i 14 tin 14 2

2. PSTE Training for Trainers 38 I mI PSTE IIPP Managers 38 M In 38 II 3 03. PS'T-E Teachuig StaIT(MA) Customized Master's Degree

Programs:a. Mathematics Teaching 25 30 in a. Mathetnatics reaching 30 30 m 20 18 nt 20 10

b. Science 'eaching 25 30 m h. Scicnc T''caching 30 30 ni 27 I8 m 27 3 a)

c. Social Study Teaching' 25 30 i c. Social Study Teaching 30 30 m 28 18 m 28 2 b)

d. Language Teaching 25 30 nm d. Language Teaching 30 30 n1 40 18 im 40 (10) C)

c. Lower Primary Subject Teaching 10 30 m e. Lower 'rimary Subiect Teachinig I 30 In 17 18 m 17 (2) cj

I' Moral Civil Education 20 3i) ing. Physical Education Teaching5 30 nih. Distanice Learning 3 30 n .i. Teaching Special Education 5 30 m

4. PSTE Teaching Staff(Ph.D.) . . __ Regular Doctoral Programs:a. Mathiemitics Teaching 3 36 m a. Mathematics Teaching 5 36 mn 4 36 mi 3 1 d)

b. Science Teaching 3 36 in b. Science Tcaching 3 36 nm 3 36i I I 0 d)

c. Social Study Teaching 3 36 i c. Social Study Teaching 3 36 m 3 . 36 m

d. Language Teaching 3 36 m d. Language Teaching 4 361n1 4 36 m 3 0 d

C. Lower Primary Subject Teaching e. Lower Primary Subject Teaching 4 36 n _ 4 36 nm _ _ 4 _ 4 0t: Distance Learning I 36 m f. Distance Learning I 36 m _ 36 m 0 d)

g. Moral Civil Education 2 ~' 36 m._5. Primary Education (MA)

= a. Practice-oriented 5 30 m_b. Research-oriented

6. Primary Education (Ph.D.) Primary Education (Ph.D.):a. Practice-oriented 4 36 in a. P'ractice-oricintedb. Research-oriented 6 36 m b. Research-oriented 5 36 In 5 36 m I 4 0

7. M.l.S. (MA) 3 3() nm8. PSTE Educators Training 270 3 n1 PS'I'E Educators Training 135 3 In 135 3 m 135 0

9 -Research Managers 3 3 In 3 3 m 3 0

10. S2 Curriculum Developers 18 3 in 18 3 In IS 0II. _ D-ll Curriculum Developers 14 3 In 13 3 m 13 i

12. PS'I'E In-Service ''rainers 100 3 mi 100 3 mi 100 0

13. Regular Master's D)egreePrograms:a. MIS/Plolicy Analysis 3 30 24 in3 0b. Distance Learning of'l'E 3 30Il I 24ni m 2

.. ______ c. Physical Education 330 24 m 3d. Spccial Education 5 30 In 4 24 m 4 I b)

Sub Total I 500 participants 501 487 3 480 14

Original Distribution (SAR, Annex 5) Modilied Distribution Realizati_on

No. Target 'I'arget Number of Duration In- Completed Shortage Remarks

Programs Number of Duration Programs NumbLr of Duration Participants Program

Participants Participants

I. IN-COtJNTRY I1 IN-COtINTRY .

1. PSTE Teaching Stall (Non-Degree) PSTE Teaching Staff (Non-Degree):

a. Mathematics Teaching 100 6 w a. Mathematics Teaching 100 6 w 230 18 d 230 (_130) c)

b. Science Teaching 100 6 w b. Science Teaching 100_6_w 226 18 d_226_ (126) c)

c. Social Study Teaching 100 6 w c. Social Study Teaching 100 6 w 216 IS d 216 (I16) c)

d. Language Teaching 100 6 w d. Language 'eaching - _100 6 w 220 18 d _ 220 (120) c)

e. PMP Teaching 100 6 w c. PMP Teaching i00 6 w 206 18 d 206 (106) c)

f. Physical Education Teaching 100 6 w f. Physical Education Teaching 100 6w 99 18 d 99

g. Arts Teaching 10 6w g. Arts Teaching 30 6 w 78 18 d __78 (48) c)

h. Lower Primary Subject Teaching 100 6 w h. Lower Primary Subject Teaching 100 6 w 210 8 d 210 (I 10) c

i. Distance Learning ___6 wj. Teaching Special Education 10 6 w

2. PSTE Teaching Staff (S2) PSTE Teaching Staff (S2): ________ _ ______

a. Mathematics Teaching 20 24 m a. Mathematics in PE 20 30 n_ 19 _ __ 19-

b. Science Teaching 20 24 m b. Science Teaching in PrE. 20 30_m 19 _ m_ 19

c. Social Study Teaching 20 24 m c. Social Studies in PE 20 30_ m 20 30 m 20_

d. Language leaching 20 24 m d. Language Arts in PI' 20 30 in _ 9 30 m 19

. c. I.ower ~~~~~~~~~~~~~~~~~~~Pr~imary Subjcct Teachiing 20 30 mn 22 30 m 22 ~ () c)

3 I'rimary Education _

- a. Practice-oricnted 20 24 m.b. Research-oriented

4. Second SI Program 700 24 w Second SI Program 700 24 m 464 24 m . _464 236

S. UPP Managers 196 3 w IJPP Managers 196 3 w 180 I I d 180 16

6. Library Technician 98 24 in Library Technician 98 24 m 96 24 m 96

7. Training of Guru Pamong 1,600 m TrainingofGuru Pamong 1,330 I m 1591 d(261) c)

8. l'raining of Laboratory 196 2 mi 156 I m 156 40

9. _TrainieingoInentsUr 48 i w 46 I w 46 2

10. l'raining of PGSD College 270 15 d 270 15 d 270 0

SupervisorsTraining of Trainers of the 2 1 I w 21 1 w 2 1 0

APKG _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _

12. I'raining il thc Uttilization of the 648 i w 643 I w 643 5

APKG .

Sub Total II 3,424 4,33 7 5 ,051 05,0SI (71 )

TOTAL (I + 11) 3.924 4,838 5,538 1 3 5,531 (700)

Note: m indicates month (s); w indicates week (s); d indicates day (s)a) 3 of them died in fatal tralTte accidentb) I ofthenm died in fatal tratrie accidentc) over the targetd) I of them; scholarship supports terminated, because thlerc was no appreciable progress aller 2 extensions.

Table 2.1: Educational Facilities and Equipment

No. SAR Program Modified Realization

l. Civil work: '34.400 m2(IKIP/FKIP dormitories): note: 40 dormitories32,000 M2 (@800 m2/dom) and

2 dormitories (2.400 m2)by internal fund

2. Furniture Furniture:1. Household furniture 42 packages2. Recreational facilities 42 packages

3. Equipment: Equipment:a. Laboratory a. Laboratory Equipment 78 packages

Equipment Of MIPA-PGSDb. KIT-IPA 90 packagesc. Computer 89 units

b. PC and Printer d. Printer 89 unitse. Stabilizer 89 unitsf. OHP 89 units

c. OHP and TV/VCR g. TV 89 unitsh. Video Player 89 unitsi. Video Camera 36 units

d. Video Camera j. Ditto Machine 89 unitse. Ditto Machine

4. Learning/Teaching a. Project sponsored text 28 titles; 93,060 exemplarsMaterials: book production

b. Commercially- 75,600 exemplarspublished

text books acquisition 8,700 exemplarsc. Production of revised

APKG instruments It titles x 5 copies xd. Production of software 89 UPP = 4,895 copies

for PPL D-II PGSD 49,000 exemplarse. Curriculum SD

Production 5,640 exemplarsf. Curriculum D-II

PGSDProduction

Table 2.2: W-I1 Program Textbooks Prepared

No. Titles

1. Principles of P.S.E.2. Pancasila and Citizenship3. Social Studies at P.S. (Integrated Learning)4. Science Education at P.S.5. Mathematics6. Mathematics Education I7. Language Skill Education8. Language Educational and Indonesian Literature at Lower Classes9. Performing Art Education

10. Physical Education and Health11. Development and learning of student12. Guidance in P.S.13. Teaching Learning Strategy14. Classroom Management15. Educational Evaluation16. Basic Concept Social Studies17. Global Perspectives18. Basic Concept Sciences19. Mathematics Education II20. Language Education and Indonesian Literature at Higher Classes21. Music Art Education22. Dance Art Education23. Pembelajaran Kelas Rangkap24. Pengembangan Kegiatan Ko dan Ekstra Kurikuler25. Pengembangan dan Pemanfaatan Sumber Belajar Pendidikan Dasar26. Penelitian Tindakan Kelas27. Pengembangan Muatan Lokal28. Performing Art Education (Color)

Table 2.3: Average GPAs before and after Project Inputs

GPA

Cohort Statistics Basic Specific | Student

Courses Courses Practice

90/91 - 92/93 Average 2.619 2.596 3.29(no input from project) SD 0.435 0.34 0.572

Subject 6523 6498 6503

93/94 - 94/95 Average 2.627 2.659 3.376(limited input from project) SD 0.441 0.328 0.525

Subject 4718 4710 4708

95/96 - 96/97 Average 2.721 2.807 3.491(project input) SD 0.477 0.349 0.538

Subject 2173 2168 2256

Table 3.1: Scholarship

No. Batch SAR QuotaDikti Project Modified Realization

01. 1993/1994 Max. 8,000 7,000 Scholarship 20% 1,416student per-annum of student body

02. 1994/1995 Max. 8,000 7,000 Scholarship 20% 1,400student per-annum of student body

03. 1995/1996 Max. 8,000 5,000 Scholarship 20% 1,000student per-annum of student body

04. 1996/1997 Max. 8,000 2,500 Scholarship 100% 1,910student per-annum

05. 1997/1998 Max. 8,000 2,500 Scholarship 100% 2,442student per-annum

06. 1998/1999 Max. 8,000 2,500 Scholarship 180student per annum dependency on Pemda

Notes:* 30 student in Sumbar available from Deptrans & PPH* 30 student in Kalbar available from Deptrans & PPH* 120 student available from Pemda Jawa Timur

Table 3.2: Number of PGSD Scholars Graduated and Appointed(as of March 1999)

GRADUATED YEARS TOTAL

1992/ 1993/ 1 1994/ 1995/ 1996/ 1997/ 1998/1993 1994 j 1995 1996 1997 1998 1999

Total Graduated 6,359 6,888 7,028 7,248 7,003 5,001 2,664 42,191

TAC November 1997 5,940 3,868 2,300 2,483 679 15,27093.41% 56.16% 32.73% 34.26% 9.70% 36.19%

_~~~~~ = .1 _ _1 _ _ ___

TAC May 1998 5,963 4,918 3,195 3,088 2,045 432 19,641

93.77% 71.40% 4-.46% 42.60% 29.20% 8J64% 46.55%

TAC November 1998 6,011 4,997 4,214 3,812 2,307 5821 21,92394.53% 72.55% 59.96% 52.59% 32.94% 11.64%1 51.96%

.~ ~ =__ _=ll

Means of percentage 0.56% 8.20% 13.62% 9.17% 11.62% 3.00%on 3 previous periods

appointment L___ll l__

% of Increase 0.56% 8.20% 13.62% 9.17% 1.62% |7.69%Estimates 1 l I_ _L 1 1.62%

TAC May 1999 6,047 5,562 5,171 4,477 3,121 967 1,910 27,25395.09%1 80.74%1 73.58% 61.76% 4457% 1933% 71.70% 64.59%

TAC November 1999 6,082 6,126 6,128 5,141 3,935 1,352 2,122 30,88695.64% 88.94% 87.19% 70.93% 56.19%) 27.02% 79.65% 73.20%

Notes: TAC = Total Appointed Cumulative1. TAC May 1999 & November 1999 in the years of graduation 1992/1993 to 1996/1997 based on the

average increase in appointment in the previous three periods2. TAC May 1999 & November 1999 in the years of graduation 1997/1998 based on the following

calculation: (0.56% + 8.20% + 13.62% + 9.17% + 11.62% + 3%): 6 = 7.69%3. TAC May 1999 & November 1999 in the years of graduation 1998/1999 based on recruitment target.

Table 4.1: Completion of Research and Studies

;; ~ ~ ~ Scp Target;; 00l;0;78>0y : ::C-::t5 - 0 Accomplishiment

Large Scale Policy Studies 7 7

Small Scale Policy Studies 20 20

Action Research 12 12

Classroom Action Research (Modified Program) - 178

Total 39 217

Table 4.2: Research Publications

SAR Target Accomplishment

Edition Theme Articles Copies

1. Journal Unspecified Volume I Small Scale Policy Studies 9 1.000Volume II Action Research 6 1.000Volume III Small Scale Policy Studies 10 500Volume IV Action Research 6 500Volume V Classroom Action 9 500Volume VI Research 8 500

Classroom ActionResearch

2. Books, Unspecified Volume I Introduction to Classroom - 303articles, Action Research (CAR).manuals,Bibliographi Volume II Plan Design and 303es, Implementation of CAR.and abstract. Volume III

Supervision of 3303Volume IV Implementation of CAR.

Analysis and Reflection in 303CAR.

Note:1. Recipients of Journal: 89 UPPs, 3 S2 PSE Program, 36 LPTKs Research Centre, PPM Ditjen

Dikti, Balitbang Depdikbud, and LIPl.2. Recipients of Manuals: 89 UPPs @ 3 exemplars, and 36 LPTKs Research Centre @ I

exemplar.

Table 4.3: Workshops and Seminars on Research

SAR Target Accomplishment

Locations and NumberTopics and Participants Tixne on°tdof

.~~~~~~~~~~~~~~~~~~~Ptp1. Small grants Unspecified I . Workshop on Proposal Yogyakarta:

and applied Improvement, and Monitoring - February 1994 20research and Evaluation of Large Scale - September 1994 20workshop Policy Studies. Participants: - June 1995 20held; the Consultants, WB Consultant (Mr. - December 1995 20locations and Tony Somerset), RMU-RQCU, - June 1996 20the number of and CPIU Consultants. - June 1997 20participants - March 1998. 20in each.

2. Workshop on Small Scale Policy Padang, Dec 93 40 & 27Studies and Action Research Uj.Pandang, Nov93 40 & 27Batch 1. Participants: LPTK Yogya, Nov 93 39 & 27Lecturers (ProspectiveConsultants), RMU-RQCU andCPIU Consultants.

3. Workshop on Small Scale Policy Malang, Nov 94 35 & 36Studies and Action Research Palembang, Des'94 35 & 35Batch 11. Participants: LPTK Yogya, Nov 94 35Lecturers (ProspectiveConsultants) and RMU-RQCU.

504. Workshop on Classroom Action Yogyakarta,

Research (CAR). Participants: July 1997Director of Research Center of35 LPTK as internal supervisors,RMU-RQCU and CPIUConsultants.

SARA ishment

NumberLocations and oTh opics and Particits TimePr

2. The number Unspecified 1. National Seminar on Findings of Bogor, Oct. 1995 50of policy Small Scale Policy Studies andreview Action Research Batch 1.seminars Participants: Consultants, LPTKheld. Research Center, RMU-RQCU,

Dikti, Dikdasmen, Balitbang,Kanwil, Deptrans PPH andCPIU.

2. National Seminar on Findings of Bogor, Jan. 1997 76Large Scale and Small ScalePolicy Studies, and ActionResearch Batch 11. Participants:Consultants, LPTK ResearchCenter, RMU-RQCU, Dikti,Dikdasmen, Balitbang, RorenDikbud, Kanwil Dikbud, DinasP dan K Jabar, Deptrans PPH andCPIU Consultants.

3. LPTK Seminar on Findings of 35 LPTK ± 30 inClassroom Action Research. eachParticipants: Consultants, LPTKLectures D-1l PGSD, and LPTKResearch Center.

4. Regional Seminar on Findings of Magelang, Jan 98 125Classroom Action Research. Palembang, Jan 98 60Participants: Consultants, LPTK Uj.Pandang, Jan 98 66Research Center, RMU-RQCU,Dikti, Dikdasmen, Balitbang,Deptrans PPH and CPIUConsultants.

5. National Seminar on Findings of Magelang, Aug 98 47Classroom Action Research (33Selected Topics). Participants:Consultants, LPTK ResearchCenter, RMU-RQCU, Dikti,Dikdasmen, Balitbang, Kanwil,Deptrans PPH and CPIUConsultants.

Note:RMU-RQCU = Research Management Unit - Research Quality Control Unit.

Table 5: The Reconfigure Consultancy Input

No. Area SAR Version 1st Modification Modification RealizationNo. Area (October 1994) ~~~~~(May 1995)

F D T F D T F D T F D T01. Training Development 18 36 54 3 24 27 2 24 26 0 44 44

(12) (12) (12) (12) (5) (5)02. Subject Area Training 60 60 120 60 48 108 42 48 90 55 65 120

(12) (12) (12) (12)03. Training Program Evaluation 3 3 6 6 6 12 4 6 10 0 6 6

(5) (5)04. Curriculum Development 9 9 18 6 6 12 5 6 11 0 16 16

(5) (5)05. Learning Materials 6 6 12 6 6 12 4 6 10 0 23 23

Development

06. Curriculum Evaluation 3 3 6 3 3 6 2 3 5 0 7 7

07. Laboratory Equipment 0 3 3 0 (3) (3) 0 (3) (3) 0 3 3

08. Civil Work 0 6 6 0 (6) (6) 0 (6) (6) 0 4 4(5) (5)

09. Information System 6 6 12 0 0 0 0 0 0 0 0 0

10. Student Selection 3 3 6 0 0 0 0 0 0 0 0 0

11. Research 16 16 32 16 16 32 8 16 24 6 46 52(5) (5)

12. SPP/CBSA Management 3 3 6 0 0 0 0 0 0 0 0 0

13. Higher Education Management 0 6 6 0 0 0 0 0 0 0 0 0Contracted 127 160 287 100 109 209 67 109 176 61 214 275

Self-Managed 0 0 0 27 51 78 0 51 51 0 25 25

Total | 1271 1601287| 127 1601 287 67 1601 22 7 | 611 2393 300

CARTE

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