2020

Institutional Capacity Assessment of MoRA In-Service Teacher

Education

THE WORLD BANK

JUNE 2020

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This report is a product of the staff of the World Bank, supported by funding from the Australian Government. The findings, interpretations, and conclusions expressed in this report do not necessarily reflect the views of the Executive Directors of the World Bank or the governments they represent, or the Australian Government. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of the World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. © 2020 The World Bank 1818 H Street NW, Washington DC 20433 Telephone: 202-473-1000 www.worldbank.org The material in this publication is copyrighted. Copying and/or transmitting portions or all of this work without permission maybe a violation of applicable law. The World Bank encourages dissemination of its work and will normally grant permission to reproduce portions of this work promptly. For permission to photocopy or reprint any part of this work, please send a request with complete information to the Copyright Clearance Center, Inc., 222 Rosewood Drive, Danvers, MA 01923, USA, telephone 978-750-8400, fax 978-750-4470, http://www.copyright.com/. All queries on rights and licenses, including subsidiary rights, should be addressed to World Bank Publications, The World Bank Group, 1818 H Street NW, Washington, DC 20433, USA; fax: 202-5222625; e-mail: pubrights@worldbank.org.

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Contents

Executive Summary ............................................................................................................................. 3

1 Introduction ................................................................................................................................ 7

1.1 Teacher professional development .................................................................................... 9

2 MoRA Institutional Landscape .................................................................................................. 11

2.1 Overview ........................................................................................................................... 13

2.2 Pusdiklat ............................................................................................................................ 16

2.3 Islamic Education Organizations ....................................................................................... 20

2.4 Donor Projects .................................................................................................................. 22

2.5 Balai Diklat Keagamaan (BDKs) ......................................................................................... 23

2.6 District level peer working groups .................................................................................... 36

3 Implications for capacity for in-service teacher training .......................................................... 37

Appendix 1: Summary of Indonesia MORA data collected (by level and region) ................................. 42

Appendix 2: Regulations and policies governing teacher education in MORA .................................... 44

Appendix 3: Sample Job Descriptions of BDK Non-Widyaiswara Staff ................................................. 54

Appendix 4: Pustekkom (Information technology and communication center) .................................. 65

Appendix 5: BDK Case Study Reports ................................................................................................... 66

Case study 1: BDK Ambon and peer working groups........................................................................ 67

Case study 2: BDK Bandung and peer working groups ..................................................................... 70

Case Study 3: BDK Palembang and peer working groups ................................................................. 76

Case Study 4: BDK Semarang and peer working groups ................................................................... 82

Appendix 6: Research and Evaluation of BDK training ......................................................................... 90

Post Training of BDK (Semarang) ...................................................................................................... 90

Study on Relevance of Training for Teachers (BDK Bandung) .......................................................... 91

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Executive Summary

Indonesia has the fourth largest education system in the world and continues to battle lower than average learning outcomes as measured on international tests such as TIMSS and PISA. Previous work done by the World Bank, and other organizations, has pointed to teacher quality challenges in Indonesia as a key contributor to poor learning outcomes. Indonesia has a large and diverse cadre of teachers, and the evolving education system and reforms introduced further complicate the challenges of teacher quality. Continuing Professional Development (CPD) for teachers thus has an important role to play in improving learning outcomes for Indonesian students. The 53 million Indonesian children enrolled in formal education attend either public or private schools overseen by the Ministry of Education of Culture (MoEC) and the Ministry of Religious Affairs (MoRA), with 12 percent of all primary and secondary students enrolled in schools administered by MoRA. The focus of this report is the MoRA sector, where few CPD opportunities are currently available. To conceptualise a capacity building plan for teachers, directors and supervisors with MoRA and given the dearth of existing information about this sector, it was necessary to do an initial mapping and assessment of current institutional capacity for in-service training within the organizational structures that fall under MoRA. To this end, a research team held extensive discussions with the Director General of Islamic Education and the Director of Madrasah Teacher and Education Personnel at MoRA to better understand the Government’s priorities and concerns about the teacher training system, as well as to learn about the system’s strengths and innovative approaches. Additional desktop research on capacity building needs in the sector highlighted the limited amount of system-wide information available. The team conducted field visits to better understand the sector, capacity building needs, and current practices on the ground. Research instruments were developed to guide data collection during the field visits covering different levels of the system as explained in later sections of the report. Field visits were carried out by teams of local researchers from February to May 2019. An online survey was also sent to participants in an online training course at one site. This report presents the findings of this mapping exercise. The report documents in detail the MoRA institutional landscape, both public and private, at the national, regional and district levels and discusses key donor-funded projects and the role of Islamic Education Organizations in the sector. Within MoRA, various structures are responsible for implementation of CPD. Operating under the auspices of the MoRA Research, Development, Education and Training Agency (Balitbang Diklat), the first of these is Pusdiklat, the national institution primarily responsible for developing the training system, developing content, and creating regulations, procedures, and guidelines to govern the system. Regional training centers are known as Balai Diklat Keagamaan (BDK). There are 14 such centers, covering the 34 provinces, which means that some are responsible for more than one province. At the district level, MoRA has begun to introduce peer working groups for teachers, school directors, and supervisors, building on practices successfully implemented by MoEC. At present, there are 629,185 personnel (including principals, teachers, laboratory assistants, librarians, and supervisors) employed within the MORA system. The total numbers of MoRA personnel who were trained in 2018 (55,194) and 2019 (66,081) are shown in Table 14. Based on the available numbers, we conclude that CPD was provided to only between 9 and 11% of the MoRA personnel annually across these two years. The need to invest in CPD for MoRA personnel is thus great.

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Recent work done by World Bank researchers1 led to the identification of five principles that ought to underpin efforts to build cadres of effective teachers. Figure 1 in the report summarizes all five principles. Considering the focus of this research on assessing the capacity for in-service CPD for MoRA personnel, principles 1, 4, and 5 were most relevant. Below is a summary assessment of the capacity of MoRA’s CPD systems and organizational infrastructure in relation to those principles, based on the data collected through the processes described above. This table provides an overarching summary of the key findings of this report. Table 1 Capacity for MoRA in-service teacher training in terms of World Bank principles

Principle MoRA capacity

PRINCIPLE 1: Make teaching an attractive profession by improving its status, compensation policies and career progression structures

Policy change since 2005 reflects progress aligned with this principle, including the unconditional salary increase that was introduced, although, as discussed above, this reform did not link increased pay to teacher performance and there was little improvement of student learning. Block grants were disbursed for establishing pilot peer working groups as a mechanism to support career progression opportunities through peer working groups. Nonetheless, many teachers who participated in focus groups, and particularly those from private madrasahs, reported major financial constraints including the need to self-fund their participation in peer working groups because madrasahs were seldom able to provide any additional financial support which limited the impact of the peer working groups. The case study data also pointed to other career progression challenges, such as teachers who noted that they attended BDK training opportunities to get the certificate and qualify for salary increases where the focus should ideally be on learning new skills and building networks.

PRINCIPLE 4: Provide continuous support and motivation, in the form of high-quality in-service training and strong school leadership, to allow teachers to continually improve.

While some in-service training opportunities are in place as are other interventions to support teachers and school leadership, demand outstrips supply and significant expansion of in-service training opportunities is needed, particularly by MoRA. About 20% of MoRA schools are located in remote areas and teachers and principals from these schools have even fewer opportunities. Little specific information about quality measures was available, although BDKs did report conducting internal quality assurance of their training. MoRA currently does not assess the effectiveness of training once teachers return to their schools. Both LP’Ma’arif and the Education Council of Muhammadiyah conduct some capacity building for teachers in their schools, but funding constraints limit the reach.

PRINCIPLE 5: Use technology wisely to enhance the ability of teachers to reach every student, factoring their areas of strength and development.

MoRA does not have a dedicated unit responsible for ICT but could learn lessons from the experience of the MoEC ICT Centre (Pustekkom) (See Appendix 4). Pusdiklat has collaborated with Pustekkom to offer some ICT related training for MoRA teachers and lessons from this collaboration could inform future collaborative efforts to expand technology support. The Dikdasemen of PP Muhammadiyah Council launched an online application called EduMu to support teachers in Muhammadiyah schools. Ten of the 14 BDKs have access to ICT resources to support teachers, but as with in-service training provision, demand far outstrips supply. Only three of the BDKs currently offer online/distance training (DJJ) options (see

1 Béteille, T & Evans, DK (2019). Successful Teachers, Successful Students: Recruiting and Supporting Society’s Most Crucial Profession. World Bank Policy Approach to Teachers. Washington DC: World Bank Group

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Principle MoRA capacity Table 14). The survey responses submitted by teachers who completed an online course at Semarang BDK showed positive experiences with the use of technology (see Figure 4). However, infrastructure challenges like reliable electricity access and internet connectivity with enough bandwidth need to be addressed before meaningful integration of ICT into the CPD process will be possible.

MoRA currently provides relatively few CPD opportunities for teachers, school directors, and supervisors, especially for personnel at private schools, which comprise most of its system. Further, it does not systematically measure the effectiveness of these training investments in improving performance of schools and students. The quality of available CPD is reportedly varied and could be made more effective. The issue of quality is paramount: low-quality training programs will not lead to a transformation in school leadership, while high-quality, carefully targeted programs can support improvements in schools and classrooms. To become more effective, CPD within MoRA should become more systematic, more practical, more collaborative, and based in the real world of schools and classrooms. This could focus on strengthening and expanding access to peer working groups for teachers, madrasah directors, and supervisors, as these have shown good evidence both of adding value and having an impact, both through this research and from similar experiences in MoEC. However, it is insufficient to leave them on their own without guidance if real teacher improvement is to take place. The groups need regular funding and a structured program of improvement to implement. Such interventions should be clearly focused on subject content framed within a comprehensive program of classroom lesson improvement. Given this, the following actions to build an effective, sustainable system of peer working groups to deliver CPD could be considered (please see full report for more detailed information regarding each recommendation): 1) Identify priority capacity-building needs for teachers, directors, and supervisors, differentiated by

grade and subject, drawing on research already conducted on schools, madrasahs, and teachers in Indonesia and aligned with existing teacher competency standards (UU No.14/2005). This should include periodic implementation of teacher diagnostic tests (Asesmen Kompetensi Guru or AKG, Asessment Kompetensi Kepala Madrasah or KKM, and Assement Kompetensi pengawas Madrasah or AKPM).

2) Develop structured modules and materials to support activities in peer working groups, informed

by the above diagnostic tests. Work of this kind is already being undertaken by GTK, adapting modules from MoEC, which provides a useful point of departure. Although infrastructure challenges remain, the potential of reaching teachers who currently have little access to CPD via online provision was evident from the research.

3) In scaling up the peer working group system, adopt existing good practices as and where relevant.

As this report has noted, several good CPD practices have been piloted in Indonesia and have demonstrated effectiveness.

4) Build strong systems of monitoring and evaluation to track and improve the reach and

effectiveness of peer working groups. Collecting information for this report has been very difficult as it is spread across multiple locations and accurate records have often been hard to collect and aggregate, thus, there is a need for much more structured monitoring and quality assurance, as well as ongoing formative evaluation and impact assessment

5) Increase the flow of funds into peer working groups. This is needed to cover the operational costs

of the groups and to ensure that individual participants have access to necessary travel funds to

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be able to attend session. This will initially require some scaling up of the distribution of block grants at sub-district and madrasah levels. While in the long run, there will be a need to ensure that greater use is made of BOS funds to support peer working groups.

6) Development, piloting, and rollout of effective remote CPD strategies for educational personnel

(including directors, teachers, librarians, and laboratory technicians) at madrasahs that are too remote to enable regular participation in peer working groups. These measures will be increasingly important, even for areas that are not remote, in the context of the global COVID-19 pandemic. The development of a remote CPD strategy is thus relevant nationwide and ought to be a priority.

7) Drawing from all of the above, develop and approve relevant policies and regulations on in-service

training and particularly the operations of peer working groups, building on existing regulations and drawing from lessons learned during pilot projects in MoRA, the experiences of MoEC, and international best practices.

8) Ensure a systematic approach and coordinated effort between the key players involved in

implementing CPD, particularly the GTK, Pusdiklat, and the BDKs. The current system is highly fragmented, with individual structures operating largely in isolation from one another, although there are now initiatives to coordinate such efforts taking place in advance of preparations to scale up CPD for the system.

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1 Introduction

Indonesia has the fourth largest education system in the world. There are about 263,700 schools of all types in Indonesia, of which 172,800 are primary, 55,900 lower secondary, and 35,000 upper secondary.2 The 53 million Indonesian children enrolled in formal education attend either public or private schools overseen by the Ministry of Education of Culture (MoEC) and the Ministry of Religious Affairs (MoRA), with 12 percent of all primary and secondary students enrolled in schools administered by MoRA. Student learning levels are low, as measured by international assessment tests, and performance of MoRA schools tends to be lower than in MoEC schools, particularly for private MoRA schools which constitute 92% of MoRA’s education system. Altogether, 12 percent of the Indonesian pre-tertiary student population attend private MoRA schools,3 thus, improving educational quality in these schools ought to be a greater priority than it has been to date. A 2010 World Bank report4 identified several concerns regarding student learning outcomes in Indonesia, and teacher quality was identified as a key determinant of learning outcomes. Research conducted by the Asia Philanthropy Circle (APC) in 2017 showed that 55% of Indonesia students scored below the minimum literacy level and 69% scored below the minimum level in mathematics in the PISA test.5 The performance of Indonesian students in the 2015 Trends in International Mathematics and Sciences Study (TIMSS) and Programme for International Student Assessment (PISA), ranks Indonesia 44 out of 49 participating countries.6 Wijaya (2017) analysed Indonesian students’ performance in the TIMSS fractions items. They found that Indonesian fourth graders performed particularly poorly in fractions, even when compared with students from other countries with low TIMSS scores.7 Levels of knowledge, skills, and performance, together with relatively low levels of educational attainment of teachers, contribute to these low student learning outcomes.8 Existing research documents the many challenges of teacher quality in Indonesia; Indonesia has a large and diverse cadre of teachers, and the evolving education system and reforms introduced further complicate the challenges of teacher quality.9 One of these policy changes was a large, unconditional increase in the salaries of teachers employed within the civil service, linked to a certification process. While this improved teachers’ satisfaction with their work and reduced their financial stress, de Ree et al (2017)10 found that it had little impact on student learning. The salary increase led to large growth in the numbers enrolling in teacher education programmes but there was little impact on teaching quality due to the lack of systematic linking of the increased salary to teacher performance in the classroom. This salary intervention was also not aligned with other teacher development initiatives. Coupled with gaps in pedagogical competency and challenges with teacher absenteeism, context presents major challenges to educational quality.

2 Statistik Pendidikan 2017/18 (MoEC, 2018) and Statistik Pendidikan Islam 2015/16 (MoRA, 2017) 3 MoRA EMIS, 2017, MoEC Statistik Pendidikan 2017/18 4 World Bank (2010). Transforming Indonesia’s Teaching Force (Volume 1: Executive Summary). Jakarta: The World Bank Office Jakarta. 5 Tanoto Foundation (2020). Program Peningkatan Kualitas Pendidikan Dasar, pg. 1. www.pintar.tanotofoundation.org 6 Fenanlampir, Alberthus & Batlolona, John & Imelda, Imelda. (2019). The Struggle of Indonesian Students in the Context of Timss and Pisa has not Ended. International Journal of Civil Engineering and Technology. 10. 393-406. 7 Qijaya, A (2017). The difficulties of Indonesian fourth graders in learning fractions. An early exploration of TIMSS 2015 results. AIP Conference Proceedings 1868, 050027. https://aip.scitation.org/doi/pdf/10.1063/1.4995154 8 Ibid.; see also Afkar et al. World Bank forthcoming. 9 Chu Chang, M; Sharffer, S; Al-Samarrai, S; Ragatz, AB; de Ree, J & Stevenson, R (2014). Teacher Reform in Indonesia. The Role of Politics and Evidence in Policy-Making. Washington D.C.: The World Bank. 10 De Ree, J; Muralidharan, K; Pradhan, M & Rogers, H (2016). Double for Nothing? Experimental Evidence on an Unconditional Teacher Salary Increased in Indonesia. World Bank Policy Working Paper 8264. http://documents.worldbank.org/curated/en/616961512396126770/pdf/WPS8264.pdf

http://www.pintar.tanotofoundation.org/https://aip.scitation.org/doi/pdf/10.1063/1.4995154http://documents.worldbank.org/curated/en/616961512396126770/pdf/WPS8264.pdf

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The potential benefits of effectively investing in improving teacher competencies at multiple levels is clear.11 One key investment needed is continuous professional development (CPD), which impacts teacher classroom practices and student learning.12 The PINTAR program run by the Tanoto Foundation has focused on strengthening of Teachers Training Institutes (TTIs) as one of its core strategies and improvements in student learning are already evident.13 While some Madrasah are included in the PINTAR programme and MoRA is one of the programme partners (together with MoEC and MoRTHE), MoRA itself currently provides few CPD opportunities for teachers, school directors, and supervisors especially for the private schools which comprise most of its system. Further, it does not measure the effectiveness of these training investments in improving performance of schools and students. In addition to high quality and effectively supported teachers, all schools require quality leadership from their directors.14 Research shows the critical role of school directors, particularly in the context of reforms toward decentralized management, as highlighted in a recent World Bank report on school-based management in Indonesia.15 The need to invest in CPD for school principals is thus well supported by existing research, though the issue of quality is paramount: low-quality training programs will not lead to a transformation in school leadership, while high-quality, carefully targeted programs can support improvements in schools and classrooms. Teachers, school directors, and supervisors in public and private schools of MoRA currently have limited access to in-service teacher education and capacity building. The quality of available CPD is varied and could be made more effective, according to available research about most effective training practices. Almost all schools under MoRA16 receive Bantuan Operasional Sekolah (School operational grants) (BOS), while other forms of public fiscal support are limited for private schools. The public schools under MoRA are fully funded from centrally managed resources, while private schools receive between 25 and 60 percent of funding from private (non-governmental) sources, varying according to the school and its location.17 Private schools under MoRA receive partial public financing in the form of BOS, benefits for certified teachers, and salary payments for civil servants, which make up 8 percent of their teacher workforce, as well as limited financing from the province or district, varying according to the year, the province/district in which they are located, and the nature of the relationship between the school and province/district.18 Before embarking on the conceptualization of a fully-fledged capacity building plan for teachers, directors and supervisors with MoRA, it is necessary to do an initial mapping of current institutional

11 Chu Chang, M; Sharffer, S; Al-Samarrai, S; Ragatz, AB; de Ree, J & Stevenson, R (2014). Teacher Reform in Indonesia. The Role of Politics and Evidence in Policy-Making. Washington D.C.: The World Bank. 12 Ibid. pg. 187. 13 Tanoto Foundation (2020). Program Peningkatan Kualitas Pendidikan Dasar, pg. www.pintar.tanotofoundation.org 14 Branch, G.F; Rivkin, SG & Hanushek, E.A (2013). School Leaders Matter. Measuring the impact of effective principals. Education Next, 13 (1). 15 Fasih, T & Macdonald, K (2017). School-based management policies in Indonesia and their implementation at the school level. The World Bank and Australian Government. Sumintono, B; Sheyoputri, E.Y.A; Jiang, N; Misbach I.H & Jumintono (2015). Becoming a principal in Indonesia: possibility, pitfalls and potential. Asia Pacific Journal of Education. https://www.tandfonline.com/doi/full/10.1080/02188791.2015.1056595 16 Formal schools under MoRA include Buddhist schools, Hindu schools, Christian and Cong Hucu schools as well as Islamic schools (madrasahs). These Buddhist, Hindu, Christian, Cong Hucu and Islamic schools follow the same curriculum as other schools in Indonesia but spend additional hours on religious subjects in the national curriculum. For the rest of this document, all of these formal education institutions receiving public financing (i.e. BOS) under MoRA will be referred to as ‘MoRA schools.’ 17 Madrasah Education Financing in Indonesia (ACDP, 2013). Fielding, G., & Schalock, H. (1985). Promoting the professional development of teachers and administrators. Eugene, OR: ERICC Clearinghouse on Educational Management. 18 Jumlah Pendidik RA, MI, MTs, dan MA Berdasarkan Status Kepegawaian. Statistik Pendidikan Islam 2015/16 (MoRA, 2017).

http://www.pintar.tanotofoundation.org/https://www.tandfonline.com/doi/full/10.1080/02188791.2015.1056595

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capacity for in-service training within the organizational structures that fall under MoRA, given the dearth of existing information about this sector. To this end, a research team held extensive discussions with the Director General of Islamic Education and the Director of Madrasah Teacher and Education Personnel at MoRA to better understand the Government’s priorities and concerns about the teacher training system, as well as to learn about the system’s strengths and innovative approaches. Additional desktop research on capacity building needs in the sector highlighted the limited amount of system-wide information available. The team conducted field visits to better understand the sector, capacity building needs, and current practices on the ground. Research instruments were developed to guide data collection during the field visits covering different levels of the system as explained in later sections of the report. Field visits were carried out by teams of local researchers from February to May 2019. An online survey was also sent to participants in an online training course at one site. A summary of the data collected during field visits is shown in Appendix 1. While much time was spent doing field visits and holding meetings with relevant stakeholders, gathering comprehensive, up to date and comparable data was difficult. As such, the mapping presented in this report paints an initial picture of the status of teacher professional development within the MoRA context. Before setting out the specifics of the MoRA in-service teacher training landscape, it is helpful to situate the discussion within existing knowledge about teacher professional development approaches to provide a background against which conclusions about the current status and capacity of in-service teacher education for MoRA teachers can be drawn.

1.1 Teacher professional development

There is strong global evidence that good teachers are key to ensuring quality education.19 The 2018 World Development Report (WDR) Learning to Realize Education’s Promise makes a robust case for the centrality of teachers in raising student learning outcomes, focusing on the importance of teachers’ skills, motivation, and the importance of quality teacher-learner interaction. The report also highlights the need for effective professional development for teachers.20 Teacher professional development takes various forms. While teacher training can lead to positive gains for learning, research has also shown that this is not necessarily the case, and in some instances, teacher training may undermine learning. Building on what is already known about best practices is thus critical. Two recent publications that bring together learning in this area are instructive. Popova et al (2018)21 found that best practices include linking participation to incentives such as promotion or salary improvement, having a specific subject focus, incorporating lesson enactment and including some face-to-face training. Similarly, Darling-Hammond et al (2017)22 identify seven characteristics of effective teacher professional development. Effective teacher professional development 1) is content

19 Masino, S & Nino-Zarazua (2016). What works to improve the quality of student learning in developing countries? International Journal of Educational Development, 48 (May): 53-65. Sayed, Yusuf, Ahmed, Rashid and Mogliacci, Rada (2018). The 2030 global education agenda and teachers, teaching and teacher education . In: Verger, Antoni, Altinyelken, Hukya K and Novelli, Mario (eds.) Global education policy and international development: new agendas, issues and policies, 2nd edition. Bloomsbury, London, pp. 185-208. ISBN 9781474296014. 20 The World Bank (2018). World Development Report. Learning to realise education’s promise. Washington D.C.: The World Bank Group. 21 Popova, A; Evans, D.K; Breeding, M.E; and Arancibia, V (2018). Teacher Professional Development around the World. The Gap between Evidence and Practice. World Bank Group: Africa Region. http://documents.worldbank.org/curated/en/349051535637296801/pdf/WPS8572.pdf 22 Darling-Hammond, M.E; Hyler, M.E and Gardener, M (2017). Effective Teacher Professional Development. Learning Policy Institute Research Brief, May 2017. https://learningpolicyinstitute.org/sites/default/files/product-files/Effective_Teacher_Professional_Development_BRIEF.pdf

http://documents.worldbank.org/curated/en/349051535637296801/pdf/WPS8572.pdfhttps://learningpolicyinstitute.org/sites/default/files/product-files/Effective_Teacher_Professional_Development_BRIEF.pdfhttps://learningpolicyinstitute.org/sites/default/files/product-files/Effective_Teacher_Professional_Development_BRIEF.pdf

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focused; 2) incorporates active learning utilising adult learning theory; 3) supports collaboration, usually through job-embedded contexts; 4) used models and modelling of effective practice; 5) provides coaching and expert support; 6) offers opportunities for feedback and reflection; and 7) is of sustained duration. Writing many years earlier, Fullan (1982) in his research ‘The meaning of educational change’ reported that the degree of change is strongly related to the extent to which teachers interact with each other and provide technical help to one another. ‘Teachers need to participate in skill-training workshops,’ Fullan wrote, ‘but they also need to have one to one and group opportunities to receive and give help, and more simply to converse about the meaning of change’.23 This is not unlike what is attempted in the peer learning groups that are run across Indonesia discussed later. Referring to both the global context and Indonesia more specifically, Chu Chang et al (2014)24 state that

Unfortunately, the most typical development programs are one-off seminars and in-service short courses that are often conducted, as in Indonesia, in cascade fashion (whereby each trainee in turn trains others) and the message received at the bottom of the cascade bears little resemblance to that delivered at the top. What is needed instead, and what teachers reportedly want, is both (a) training linked to some kind of longer-term qualification process; and (b) more ongoing, school-based, research-focused training, practice, and feedback with adequate time, follow-up support, and involvement in learning activities that are similar to those they will use with their students (citing, Schleicher 2011, 21).

In their 2019 report that reviews a comprehensive range of evidence on teachers and teachers’ development, both pre- and in-service, Béteille and Evans (2019)25 set out five key principles to guide the World Bank’s support to countries for work with teachers. While all five principles are relevant to the Indonesian context, of particularly pertinent to this mapping of in-service training capacity for MoRA are principles 1, 4 and 5.26

We will return to these principles in the concluding section to provide an initial assessment of the status and capacity building needs for teacher professional development in the MoRA sector.

23 Fullan, M. (1982). The meaning of educational change, pg. 121. Toronto: OISE Press. 24 Chu Chang, M; Sharffer, S; Al-Samarrai, S; Ragatz, AB; de Ree, J & Stevenson, R (2014). Teacher Reform in Indonesia. The Role of Politics and Evidence in Policy-Making, p.67. Washington D.C.: The World Bank. 25 Béteille, T & Evans, DK (2019). Successful Teachers, Successful Students: Recruiting and Supporting Society’s Most Crucial Profession, p. 45. World Bank Policy Approach to Teachers. Washington DC: World Bank Group 26 Principle 2 has not been included since the focus is on pre-service teacher education, and principle 3 has not been included because the focus is on selection of people into the teaching profession, while this report has a specific focus on in-service teacher training

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Figure 1 Five principles to build cadres of effective teachers in middle and low-income countries27

2 MoRA Institutional Landscape

This section of the report sets out the MoRA institutional landscape. It begins with a short overview of the key components of the landscape to set out the overall context. Thereafter, each component is discussed in detail, with a focus on capacity for teacher professional development. A visual summary of the MoRA institutional landscape is shown in Figure 2. There are numerous regulations and policies that govern teacher education in MORA, which are summarized in Appendix 2 for reference. For 2020, the education budget for MoRA is IDR 52.7 Trillion and the MoEC budget is IDR 70 Trillion (State Budget in 2020). MoEC covers education from pre-primary to tertiary levels. In addition to budget allocated to MoRA and MoEC, education transfers are also made directly to subnational governments (SNGs). The value of these transfers in 2020 is IDR 283.5 Trillion, thus SNGs are responsible for the bulk of educational spending in Indonesia.28 These funds are allocated to cover education service delivery for all MoEC’s schools from pre-primary to senior secondary. Based on 2018 figures, MoRA accounts for 12% of the education budget while the general education system, including both MoEC and SNGs, 72% of the budget.

27 Béteille, T & Evans, DK (2019). Successful Teachers, Successful Students: Recruiting and Supporting Society’s Most Crucial Profession, p. 45. World Bank Policy Approach to Teachers. Washington DC: World Bank Group 28 World Bank (2020). Public Expenditure Review for Indonesia. Chapter 6: Education.

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Figure 2 Overview of the MoRA Institutional Landscape

For additional context against which the information in the coming sections can be interpreted, Table 1 outlines the total numbers of personnel currently in the MoRA system (numbers drawn from Simpatika in February 2020). Table 1 Total numbers of personnel in the MoRA system

School level

Personnel Types

Principals Laboratory assistants

Librarians

Teachers and other

education personnel

Supervisors (all school levels)

MI (primary) 23,246 205 1,1,72 237,246

3,222 MTS (Junior Secondary)

15,825 593 1,066 227,711

MA (Senior Secondary)

7,399 363 481 110,656

TOTALS per type

46,470 1,161 2,719 575,613 3,222

MoRA Research, Development, Education and Training Agency (Balitbang-Diklat)

National Board of Religious Education Training Center (Pusdiklat)

Regional Training Centres (Balai Diklat Keagamaan)

District Office (Kasie Madrasah)

Peer Working Groups for Teachers, Directors and Supervisors at district and/or school levels

(KKM, KKG, MGMP and Pokjawas)

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School level

Personnel Types

Principals Laboratory assistants

Librarians

Teachers and other

education personnel

Supervisors (all school levels)

GRAND TOTAL 629,185

2.1 Overview

Within MoRA, various structures are responsible for implementation of CPD. Operating under the auspices of the MoRA Research, Development, Education and Training Agency (Balitbang Diklat), the first of these is Pusdiklat, the national institution primarily responsible for developing the training system, developing content, and creating regulations, procedures, and guidelines to govern the system. Pusdiklat also implements national-level training of trainers, training for lead teachers and other lead technical staff, and training for high level/advanced teachers (those with minimum Echelon IVa level). Finally, it is responsible for quality assurance and governance of the regional training centers. These regional training centers are known as Balai Diklat Keagamaan (BDK). There are 14 such centers, covering the 34 provinces, which means that some are responsible for more than one province. Pusdiklat is responsible for formulating the vision, mission, and policies of the BDKs, organizing training of administrative staff and technical personnel services in the field of religious education and training, preparation and presentation of reports on the results of the implementation of the duties of the BDKs, and coordination with other organizations/units within MoRA, and regional governments, as well as other relevant institutions. The BDKs are responsible for training implementation. Figure 3 shows the location of the 14 BDKs.

14

Figure 3 Map showing location of the BDKs in Indonesia

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Given the limited scale of CPD provided by Pusdiklat and the BDKs, MoRA has begun to introduce peer working groups for teachers, school directors, and supervisors, building on practices successfully implemented by MoEC. A 2014 World Bank report noted that

There is some evidence that teacher working groups are effective in increasing knowledge levels of teachers. Teachers in working groups receiving a direct grant under the BERMUTU program show a significant improvement in cognitive and pedagogical ability.29

The report further notes, however, that It is not sufficient to simply leave them on their own without guidance if real teacher improvement is to take place. The groups do need some regular funding, and they do need a structured program of improvement to implement. Such a program should be clearly focused on subject content framed within a comprehensive program of classroom lesson improvement.30

Similar support will be needed to ensure the effectiveness of a peer-working group approach for MoRA teachers, along with adjustments and improvements based on MoRA’s system and prior experience. To support rollout of in-service training, MoRA issued a regulatory provision (Peraturan Menteri Agama [Minister of Religious Affairs Regulation] No. 60/2015) for the establishment of peer working groups for teachers and school directors, at either the school, sub-district, and/or district levels, as follows: 1) Kelompok Kerja Guru (KKGs) are working groups for primary-level teachers, provided for in Article

47A; and 2) Musyawarah Guru Mata Pelajaran (MGMPs) are working groups for junior and senior secondary

level teachers, provided for in Article 47B. 3) Kelompok Kerja Madrasah (KKMs) are working groups for school directors, provided for in

Regulation of the Minister of Religious Affairs (PMA) No. 90/2013; and 4) Kelompok Kerja Pengawas (Pokjawas) are forums for CPD and networking among supervisors,

provided for in Regulation of the Minister of Religious Affairs No. 2/2012 and Director General of Islamic Education 2019.

MoRA has developed regulations (Decree of the Director General of Islamic Education No. 7173/2017) to govern provision of block grants to KKGs, MGMPs, and KKMs to support activities in both public and private schools. In 2018, MoRA began to pilot provision of such grants,31 distributed from both central and provincial levels on a small scale to support them to undertake ongoing in-service training (distributing 70 block grants to the legal bodies established by KKGs and MGMPs to a total value of IDR 25 million).32 MoRA also allocated IDR 18.5 billion for teacher CPD in 2018. In 2019, due to the relatively small scale of the block grant program, this was consolidated so that distribution of block grants only takes place from the central level, while the legal bodies for peer working groups are typically hosted by a leading private or public school in the area. The objective of the block grants is to support peer working groups to cover the direct costs of experts (such as master teachers and lecturers from BDKs) to participate in working group meetings and lead specific training activities, as well as the cost of supplies needed to run effective meetings/sessions. It is expected that other costs of running peer working groups (such as travel to and from meetings) will be covered out of school

29 Chu Chang, M; Sharffer, S; Al-Samarrai, S; Ragatz, AB; de Ree, J & Stevenson, R (2014). Teacher Reform in Indonesia. The Role of Politics and Evidence in Policy-Making. Washington D.C.: The World Bank. 30 ibid. 31 Based on 2017 TASS Annual Report, in 2017 technical and implementation guidelines of CPD were endorsed by DG Islamic Education. 32 Based on Decree of Diektorat Jendral Pendidikan Islam No.6755/2018 that the institutions which received Grant of KKG/MGMP/KKM/POKJAWAS empowerment consists of 16 KKG, 22 MGMP, 15 KKM, 16 PKJAWAS, and 1 KKRA.Based on the decree of Pejabat Pembuat Komitmen Direktorat. Guru dan Tenaga Kependidikan Madrasah, Dirjen Pendidian Islam No. 6512/2017 that the institutions which received grant for Piloting of CPD consists of 4 MGMP, 8 KKM, and 8 KKG.

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budgets (including funds received centrally from BOS), although, as the cases studies prepared in this study show, these costs are typically covered by teachers themselves. These peer working group pilots are operating on a very small scale, given the need for CPD across the system and this is further highlighted from the field visits and data presented in this report. To give a sense of the number of peer working groups required, drawing from the experiences of MoEC, a reasonable target for establishing KKGs and MGMPs is to assume that one peer working group could comprise eight to ten nearby schools. Assuming that, on average, 10 schools will feed one peer working group, 2,495 peer working groups will be required at the MoRA’s MI level (primary), 1,697 at the MT level (junior secondary), and 798 at the MA level (senior secondary), assuming that these are all at sub-district level. However, separate KKGs are required for different grades at the primary level, though it may be possible to group some grades, while each subject would require separate MGMPs at the secondary level to be effective. Thus, the requirement to develop sustainable, scalable models to expand this form of CPD could require up to 22,000 teacher peer working groups,33 although the low numbers of teachers in some madrasahs may make this number smaller in practice. Regardless, the scale of demand is exponentially bigger than current supply. KKMs operate at the district level. At the national level, there are 50,478 schools so, assuming that there are 10 directors on average in one group, 5,047 KKMs will be required. For Pokjawas, it can be assumed that there would be 514 peer working groups required for supervisors, one for each district. In addition, based on EMIS data, it is estimated that 20 percent of schools are in remote areas, which means the teachers and directors from these schools would not be able to participate in peer working groups on a regular basis, since schools are too far apart. For these personnel, provincially organized, residential in-service training activities and/or online learning will be needed, since the time and cost of travel required to attend peer working groups on a monthly or bi-monthly basis make participation logistically impracticable. As discussed later in the report, though, the capacity to offer online CPD is currently low due to lack of connectivity or sometimes high cost of connectivity, among other issues. The following sections elaborate on this high-level overview of the MoRA system, based on the field research undertaken and additional information shared with the research team by stakeholders. The coming sections are structured according to the main levels of the system, namely Pusdiklat at the national level, BDKs at the regional/provincial level, and peer working groups at the district levels. An overview of relevant donor projects and the role of Islamic Education Organizations is also presented.

2.2 Pusdiklat

According to Decree of the Ministry of Religious Affairs No. 42 Year 2016 (Pelaturan Menteri Agama Nompr 42 Tahun 2016 tentang Organizasi dan Tata Kerja Balai Diklat Keagamaan), the Board of Religious and Education Training Center (Pusdiklat Jakarta) is a training institution with a mandate to develop technical policy in education and training, and technical development of religious and education staff in accordance with the government regulations. Pusdiklat carries out numerous functions, including:

33 This assumes three working groups per school at the primary level for 1st & 2nd grades, 3rd & 4th grades, 5th & 6th grades as an initial approach, with individual grades being supported in future years. This would require three times the number of MIs, so 3x2,495 = 7,485. If junior secondary is taken as a group for now, with the intention to separate by grade in future. years, that is 1,697 MT working groups, and if we take the two core subjects of math and science, and group the other core subjects into two additional groups by grade, that is 4 subject groupings x 4 different grades x 798 MA schools = 12,768 peer working groups, for a grand total of 21,950 working groups.

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• Developing technical policy for training and education, and developing religious and education technical staff;34

• Implementing education and training, and developing and conducting religious and education technical staff quality assurance;

• Gathering information about facilities and education cooperation of religious and education technical staff;

• Monitoring and evaluation of training implementation and post training implementation of religious and education technical staff;

• Implementing guidance for substantive education and training, and developing religious and education technical staff;

• Writing reports on education and training program implementation and developing religious and education technical staff; and

• Undertaking central administration. Figure 4 shows the organizational structure of Pusdiklat. Based on the organization’s structure, its central functions are administration, training implementation (including appointment of instructors) and quality assurance. There is a Director who oversees the functions of Pusdiklat. Figure 4 Organizational structure of Pusdiklat

Pusdiklat is both a training provider and oversees the 14 BDKs that provide training at a regional level. Instructors at the BDKs are employed by Pusdiklat and so reflected in the staff numbers. There are 74 staff members within Pusdiklat35. Of these, 25 are instructors and the remainder are managers and support staff. Instruction staff are divided into two groups, administrative training and technical training (education and religious training). Instructors based at Pusdiklat cover the following core specialization areas. Table 2 Instructor specialization areas for the Pusdiklat

Core specialization areas Number of instructors

Rumpun Aqidah Akhlak (The Proverbs of Aqidah Akhlak) 1

Rumpun Bahasa Arab (Arabic) 2

34 Based on the decree of Head of Badan Litbang Diklat No. 685/2018 concerning Technical Guidelines of Diklat Implementation for Education Technical Staff and Religious Technical Staff. 35 This excludes the staff from the BDKs which are presented in later sections.

Head of Pusdiklat

Head of Program and Quality Assurance

division

Head of Administration

division

Head of Training Implementation division

Functional position (Widyaiswara/

instructor)

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Core specialization areas Number of instructors Rumpun Bahasa Indonesia (Indonesian Language) 1

Rumpun Bahasa Inggris (English) 2

Rumpun Bimbingan Konseling (Counselling/Guidance) 1

Rumpun Biologi / IPA (Biology) 2

Rumpun Fisika (Physics Cluster) 1

Rumpun IPS (Social Sciences Cluster) 3

Rumpun Keluarga Sakinah (Islamic religious training – ‘Happy Family Training’) 1

Rumpun Kepengawasan Sekolah/madrasah (School Monitor/Madrasah) 1

Rumpun Kimia/IPA (Chemistry) 1

Rumpun Kimia/Sains (Chemistry/Science) 1

Rumpun Matematika (Mathematics) 3

Rumpun Model Pembelajaran (Instructional model cluster) 1

Rumpun PAI pada Sekolah (Islamic Education at school) 3

Rumpun Seni Budaya (Arts and Culture) 1

Grand Total 25

Pusdiklat reports that workload analysis is an important function that is done annually to compare the volume of training activities needed against the availability of Pusdiklat staff members and budget needed to run programs. Where there are capacity constraints, Pusdiklat can request short term assistance from instructors (widyiswaras) based at the BDKs. At the beginning of each year, Pusdiklat carries out capacity building for its staff members and there is a mid-term evaluation of staff to improve their work ethic. Internal staff professional development, which is a responsibility of Pusdiklat management, is supported in various ways. Formally, staff members are granted permission to continue their education (either S2 or S3 programs, Bachelor’s or Master’s degrees respectively) at their own expense. Opportunities are provided for staff or instructors to join training run by the Pusdiklat or other training institutions. Technical guidance is also provided. For example, staff may receive training to assist them to use the Bimtek electronic system for performance management of civil servants. All levels of staff at the Pusdiklat are encouraged to attend leadership training, seminars, and other relevant training inside or outside of the country. Table 3 summarizes physical infrastructure available at Pusdiklat. In addition to classrooms with air conditioning, desks, and chairs, Pusdiklat also has a dormitory to house participants for longer training sessions. This is important for training participants coming from remote areas. Table 3 Infrastructure available at the Pusdiklat

Infrastructure Size (meters) Number

Classroom 20x15 4

Auditorium 40x60 1

Sleeping rooms/bedrooms 8x6 60

Science lab 20x15 1

Fitness room 20x25 2

Dining room 30x50 1

Small operational vehicles Multi-purpose vehicles (MVP) 11

Big operational vehicles Bus 2

Internet network 35 Mb 1

Pusdiklat has ICT facilities available for training purposes, including data projectors, audio learning aids, computer laboratories with desktop PCs and LAN networks. ICTs are also used for administrative purposes. Specific applications currently used include SIMDIKLAT, SIPPA, E-registration and E-Office,

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which includes financial management. Training participants are required to bring personal laptops to support additional learning activities. In total, 16,325 people were trained by Pusdiklat from 2015 to 2018, 62% of whom were technical religion and education staff and 38% administrative staff. The details are shown below. Table 4 Numbers trained by Pusdiklat (2015-2018)

2015 2016 2017 2018

Administrative Staff* 1983 1680 1275 1250

Technical Staff for Religion and Education 2055 2163 3100 2819

TOTAL 4038 3843 4375 4069

* Includes school directors, treasurers, secretaries or MoRA management

No budgetary information was available from Pusdiklat.

Quality Assurance Processes

Governance of education delivery is reflected in the Pusdiklat annual accountability and performance report (LAKIP). LAKIP describes the performance achieved by a government agency on implementation of programs funded by the APBN (Anggaran Pendapatan dan Belanja Negara or National Revenue and Expenditure). LAKIP is based on the annual fiscal cycle. It can be used to evaluate the performance of relevant government agencies per fiscal year.36 LAKIP is also used as a performance measurement tool towards achieving quality state financial accountability. There are six steps in the training quality assurance process at Pusdiklat: 1) Establish a quality assurance team: review potential candidates and appoint the team. 2) Team authority and task orientation: understanding team tasks and functions, understanding

quality training standards and quality control. 3) Preparation: identification and preparation for quality control training, preparing the budget,

internal and external qualitative assurance coordination, including preparing field staff/verifiers, and scheduling quality assurance visits.

4) Implementation: implementing quality control, including training needs analysis (Analisis Kebutuhan Dikla or AKD), training planning, training implementation, and training evaluation in accordance with the schedule.

5) Monitoring and evaluation of training quality control of both religious and education technical staff.

6) Preparing reports and recommendations based on the technical training quality control results. Based on government regulations, if an institution does not meet the targets that have been determined in their annual plan, there would be budget consequences.

Pusdiklat is quality certified by LAN (State Administration System), with an A grade and was awarded an ISO 9001 certificate in 2015. This means that it has the capacity and authority to conduct quality assurance for the 14 BDKs throughout the country.37

36 Memahami SAKIP dan LAKIP sebagai Tolak Ukur Kinerja PNS. http://www.asncpns.com/2015/03/memahami-sakip-dan-lakip-sebagai-tolak.html. Accessed on 15 April 2019. 37 LAN Accreditation certificate for Pusdiklat and ISO 9001:2015 can be downloaded at http://pusdiklatteknis.kemenag.go.id/index.php/en/layanan-publik/akreditasi-lembaga-dan-program

http://www.asncpns.com/2015/03/memahami-sakip-dan-lakip-sebagai-tolak.htmlhttp://www.asncpns.com/2015/03/memahami-sakip-dan-lakip-sebagai-tolak.htmlhttp://pusdiklatteknis.kemenag.go.id/index.php/en/layanan-publik/akreditasi-lembaga-dan-program

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ICT Use and Training Collaboration

There is no unit specifically responsible for ICT within MoRA. However, the MoEC has been running and ICT Center (Pustekkom) for many years. Pustekkom might provide a model that MoRA could consider. The duties of Pustekkom are to support development and use of ICT for MoEC. Pustekkom is not a training center, so it does not have widyaiswaras. It has only instructional designers and instructional media developers. However, to improve MoRA teachers’ ICT skills, Pusdiklat and Pustekkom, from 2012-2019, ran collaborative training on instructional design, website development and multi-media for about 1,000 teachers. This collaboration was initiated and funded by Pusdiklat. Pustekkom provided the IT devices and training venues in the Madrasah so that assignments could be completed online. The online broadcast venue was housed in Pustekkom. Participants included teachers and religious extensions, but most participants were teachers. Supervisors and principals were not included in this training programme. The training ran over a one-month period, and participants who graduated from training received a certificate from Pusdiklat. All participants who signed up passed the training. In 2017, Pustekkom and the Indonesian scholar board (MUI) had also collaborated to provide ICT training focused on instructional media development for 30 Islamic Education Teachers. Appendix 4 presents additional information about Pustekkom and how it functions.

2.3 Islamic Education Organizations

There are two main Islamic education organizations that fall outside of MoRA but are important parts of the landscape within which madrasahs operate. These are the Ma’arif Education Institute of Nahdlatul Ulama (NU) and the Muhammadiyah Education Council. Both organizations run many schools. There are also schools offering Islamic education that fall outside of NU and Muhammadiyah, such as Al Maksum, Darul Hikam, Assiddiqiyyah, Daarut Tauhid schools and so on. These foundations are not as big as Muhammadiyah or NU, so the focus in this section is on NU and Muhammadiyah. The Ma’arif Education Institute (LP Ma’arif NU) is a department of NU responsible for implementing NU education policies at national, provincial, district, and branch levels. For NU, education is a key pillar in achieving its vision of an autonomous society. LP Ma’arif established schools and madrasahs at primary and secondary levels. LP Ma’arif was established in 1929, and 20,139 primary secondary schools currently fall under this body. Of these, 63% are madrasahs and 37% are public schools. There are currently about six million children enrolled in these schools and 900 teachers employed. The schools all use the 2013 Curriculum as the basis for teaching and learning. This is supplemented with the teaching of the NU and ASWAJA (Ahlus Sunnah Wal Jama’ah). The Education Council of Muhammadiyah is the division of Persyarikatan Muhammadiyah that organizes schools, madrasahs, and Islamic boarding schools. The Education Council operates at national, provincial, city, district, village, and community levels and is responsible for tertiary, primary, secondary, and early childhood education. The Education Council also manages non-formal education, such as the Islamic boarding schools. When a community wants to build a school under the auspices of Muhammadiyah, it needs to hand over its land to the Muhammadiyah Union, which then builds the school under the Muhammadiyah legal entity. The educational assets (land, buildings etc.) belong to Muhammadiyah, but technical management and school administration are done by the schools themselves. It is estimated that there are 6,700 schools (primary and secondary) falling under Muhammadiyah. These schools also follow 2013 Curriculum with the addition of AI Islam, Muhammadiyahan, and Arabic language (ISHUBA) based on the Muhammadiyah PP Dikdasmen Decree Number 98/KEP/1.4/F/2017. The number of Muhammadiyah Schools per school level or type is shown below.

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Table 5 Number of Muhammadiyah Schools (2019)

School type Muhammadiyah Aisyiyah* Others** Total

Primary School 1,205 139 24 1,368

Junior Secondary S 1,137 92 24 1,253

Senior High School 541 0 7 548

Vocational School 599 37 5 641

Special Education 33 14 3 50

Madrasah Ibtidaiyah 1,377 21 0 1,398

Madrasah Tsanawiyah 570 8 0 578

Madrasah Aliyah 218 0 0 218

Total 5,680 311 63 6,049

* Refers to Muhammadiyah schools for female students. ** Refers to Muhammadiyah schools that do not use the word ‘Muhammadiyah’ in the school name.

The number of teachers and other staff, by gender, of Muhammadiyah schools is shown below. Table 6 Number of teachers and other staff, by gender, of Muhammadiyah schools

Unit/School Teachers and other Staff Male Female

Primary School 16,040 4,812 11,228

Junior Secondary S 23,035 11,517 11,518

Senior High School 17.381 10,429 6,952

Vocational School 13,900 8,340 5,560

Special Education 250 50 200

Madrasah Ibtidaiyah 13,980 4,194 9,786

Madrasah Tsanawiyah 11,560 5,780 5,780

Madrasah Aliyah 4,360 2,616 1,744

Total 100,506 47,748 52,768

Both LP Ma’arif and the Education Council of Muhammadiyah arrange capacity building for teachers and other staff based on the standards of CPD set out by the MoEC. However, they both change the implementation models to reach more teachers, for example using cheaper venues for training rather than hotels. Teachers who are trained are required to share what they learned with an additional ten teachers each. Both organizations have conducted training in school-based management, English, mathematics, and IT. Both report having insufficient internal funding to reach all the private teachers, although they do have good access to resource persons to do training. As such, they do still expect government funding to support professional development of teachers in the private schools for which they are responsible. Most schools fall into the category of ‘poor schools’ that are unable to develop teacher competencies independently. Both LP Ma’arif and the Education Council of Muhammadiyah encourage teachers in their schools to participate in peer working groups as far as possible. To date, most participation by teachers in KKG and MGMP activities has been funded by the teachers themselves. For example, it was reported that MT level teachers in the Semarang district each had to pay monthly contributions of between IDR. 5000 – IDR. 20.000. The contribution was used for MGMP activities and other social activities such as giving something for a teacher who gets sick or injured in an accident. Other examples, based on the law of Ambon city KKG, each member of the KKG has been obliged to pay Rp. 10,000 per month. The same applies to the MGMP, where Rp. 10.000 must be paid by the MGMP member for each month. In 2018, the Dikdasmen of PP Muhammadiyah Council launched a web-based application to support implementation of teaching and learning. The application is called EduMu (Muhammadiyah Digital

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Education). It is an integrated mobile and web-based academic management information system that connects parents, students, schools, and teachers and allows them to access teaching and learning information. This includes student attendance, tracking of learning, learning management, and payment of school tuition. Additional features include dapodikMu, school reward system, and real time attendance monitoring, while others are being developed. There is not any similar application in use by LP Ma’arif schools. Schools falling under both organizations also use MS Office tools for administration purposes.

Quality Assurance

Quality assurance of both LP Ma’arif and the Education Council of Muhammadiyah refer to the MoEC’s quality assurance system for both internal and external quality assurance systems. Quality assurance is a task of the Education Quality Assurance unit within MoEC, with Pusdiklat conducting quality assurance only of specific training programmes they are involved with. MoRA is not involved in the quality assurance of LP Ma’arif and the Education Council of Muhammadiyah. The internal quality assurance cycle used by LP Ma’arif and MP Muhammadiyah institutions is summarized below: 1) Mapping standards: Law No. 20 of 2003, SNP (Education National Standard) sets out quality

criteria in conducting education, which provides a baseline for quality assurance within both institutions.

2) Quality mapping: Mapping quality to the unit of education based on the quality standards set through self-evaluation activities. This results in quality maps, identification of challenges faced and recommendations.

3) Drafting fulfilment plan: A quality fulfilment plan is developed, based on the quality mapping completed in step 2, education policy document at national level, regional level, and the education and strategic plan of Education Unit enforcement.

4) Implementation of quality compliance: Conducting quality fulfilment in the management of education units and learning activities in accordance with the planning results so that standards can be achieved.

5) Evaluation/Audit of quality fulfilment implementation: Controlling the implementation process of quality fulfilment that has been done in accordance with the planned planning to ensure the certainty of continuous quality improvement.

2.4 Donor Projects

There are several donor-funded projects being run in Indonesia. The Tanoto Foundation focuses on student-centered teaching methods and support of schools to create positive learning environments. The Tanoto and Sampoerna Foundations both work with locally based ‘resource schools’ to research and demonstrate good teaching practices. Three donor-funded projects that include some focus on CPD for teachers are described in more detail.

Innovation for Indonesian School Children (INOVASI)

The Innovation for Indonesian School Children (INOVASI) program is a collaboration between the Australian Government and the MoEC in Indonesia that started in January 2016, which aims to build understandings and evidence of what works to improve learning outcomes at the classroom, school, and regional level. INOVASI is focused on learning in the fields of literacy, numeracy, and inclusion in primary schools. One method used by INOVASI is the ‘in-on-in’ method, a phased learning approach that combines organized group training and follow-up coaching for each training phase.

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INOVASI has thus far been implemented with four provincial partners across 17 districts. Cooperation focuses on partnership pilots and grant programs in each location. One of the key lessons from this initiative is that ‘pre-service teacher education and CPD must become more systematic, more practical, more collaborative, and based in the real world of schools and classrooms.’38

TASS Program

TASS is a responsive, demand driven technical assistance facility funded by the Australian Government. Working with the MoEC, the MoRA and the National Development Planning Ministry (Bappenas), TASS is helping contribute to a stronger education system in Indonesia. It does this by working with the Government of Indonesia to bring about sustainable changes in education systems, policies and practice. The program began in January 2017. Assistance provided through TASS is designed to strengthen and add value to the Indonesian Government’s systems, policies, and programs. Assistance may take the form of: • Research and analyses, designed to contribute to ongoing education policy dialogue; • Short-term technical assistance to support the Indonesian Government in areas where it requires

technical support; and • Pilot activities that test new strategies for improved quality of schooling. Support provided to date has included technical assistance to assessment reform, piloting of a CPD system for madrasah teachers, evaluating basic and secondary education quality assurance systems, and provision of technical assistance, research, and analysis in support of the Indonesian Government’s five-yearly review of education planning and strategies.

Tanoto Foundation PINTAR Programme39

The Tanoto Foundation started the Promoting Improvements to Innovate, Teach and Reach (PINTAR) programme in 2018, building on its work support basic education in Indonesia since 2010. PINTAR is being implemented in Riau, Jambi, North Sumatra, East Kalimantan and Central Java Provinces. The programme involves a partnership with the Indonesian government with the aim of increasing the quality and reach of education, focused on primary and junior secondary schools (including madrasah) and targets teachers, principals, supervisors, TTI lecturers and student teachers. As of 31 December 2019, the PINTAR programme had provided training and mentorship reaching 590 schools and madrasah, 760 national and local facilitators, 11,700 teachers, principals and school supervisors with an impact on an estimated 441,100 students.

2.5 Balai Diklat Keagamaan (BDKs)

There are currently 14 BDKs serving 34 provinces, all of which are in urban areas. Information about all 14 BDKs was provided by Pusdiklat, while field visits were undertaken to four BDKs to gather richer case study information and provide a better understanding of the role of different contexts. These BDKs were selected based on their representation of multiple regions with important contextual differences including urban, semi-urban, and remote areas, accessibility and time availability of BDK staff to participate, and a range in level of technology capacity to offer different modes of delivery.

38 Heyward, M.O; Nuraini, N.L.S and Cholifah, PS (2018). Continuous Professional Development in Primary School (pg. 135). Conference paper. DOI: 10.2991/ecpe-18.2018.28 39 Tanoto Foundation (2020). Program Peningkatan Kualitas PENDIDIKAN DASAR. January 2020. www.pintar.tanotofoundation.org

http://www.pintar.tanotofoundation.org/

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This section presents available data across all 14 BDKs, while detailed case studies of the four BDKs visited are included in Appendix 5. BDKs are responsible for providing education and training for administrative staff and education and religious technical staff. There are two types of staff, administration and technical staff and education and religious technical staff. There are three kinds of specialization amongst BDK trainers: education, religious, and administration. The trainers specializing in administration have a duty to train administrative staff or structural staff such as treasurer, head of section, and so on. Specific functions carried out by BDKs include: • Development of training programs; • Organizing education and training for administrative staff and education and religion technical

staff; • Conducting evaluations and reporting on the implementation of BDK tasks; and • BDK administration. BDKs have a common organizational structure that is determined by legislation. Figure 5 Organizational structure of the BDK

There are 346 instructors employed across the 14 BDKs), with the largest number employed at BDK Bandung (42) and the smallest number employed at Papua BDK (6). The table below provides details about the instructors at each BDK. Although three of the BDKs did not have data of instructors by gender, based on the numbers from the remaining 11 BDKs, it appears that most instructors (approximately 60%) are male. Table 7 Number of instructors per BDK by gender, qualification and functional duty40

BDK Gender Qualification Functional Duty

M F Total S3 S2 S1 D3 Others Admin Religion Educ Others

Aceh 8 7 15 1 14 -

Ambon 10 4 14 1 11 2 4 10

Denpasar 14

40 Where cells are blank, this is because no data was supplied by the relevant BDK. It is not clear in some instances whether this means the value is zero or whether the data was just not available.

Head of BDK

Section of the training for administrative staffs

Administrative sub division

Section of the training for technical education and

religious staffs

Functional position (widyaiswara)

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BDK Gender Qualification Functional Duty

M F Total S3 S2 S1 D3 Others Admin Religion Educ Others

Banjarmasin 21

Bandung 26 16 42 10 30 2 8 6 28

Jakarta 13 7 20 7 12 1 5 4 11

Makassar 18 7 25 4 19 2 7 4 14 4

Manado 10 10 20 4 16

Medan 9 14 23 21 8 15

Padang 14 10 24 4 18 2 5 4 15

Palembang 17 7 24 2 2 1 4 4 16

Papua 6

Semarang 19 15 34 4 28 2 6 2 24

Surabaya 29 10 39 10 29 9 3 27

Pusdiklat 10 15 25 3 21 1

TOTALs 183 122 346 50 221 13 0 0 56 42 145 4

Data collected from the four case-study BDKs suggested that BDKs have larger numbers of non-instructional staff than instructors, but this did not appear to be the case for all the BDKs for which data was available, as shown in Table 8. Nonetheless, BDKs do have relatively large numbers of non-instructional staff members. Appendix 3 provides an example of job descriptions of the non-instructional staff at BDK Semarang to provide an indication of what these employees are responsible for. The non-instruction staff fall into three categories: financial affairs, staffing affairs, and general affairs and libraries. Table 8 Number of non-instructional staff by gender, qualification, and work experience41

BDK Gender Qualification Work Experience

M F

Total

S3 S2 S1 D3 Othe

r

0-5 5-10 11-15 16-20 25-30

Aceh 10 2 12 - 2 10

Ambon 25

Denpasar

Banjarmasin No data

Bandung 22 12 36 7 21 6 1 12 7 9 5

Jakarta 16 11 27 1 22 4 6 5 12 4

Makassar 9 13 22 11 10 1 8 7 7 -

Manado 5 11 16 9 5 2 1 10 1 4

Medan 5 22 27 4 18 5 2 13 2 5

Padang 11 11 22 1 3 13 5 1 13 8

Palembang 15 14 29 11 6 3 4 7 20 4 4

Papua No data

Semarang 17 14 31 8 16 7

Surabaya 21 8 29 7 16 6 3 15 1 10

Pusdiklat 39 32 71 5 26 25 1 14 1 6 18 34

TOTAL 170 150 347 6 89 162 11 43 8 44 108 78 32

41 Where cells are blank, this is because no data was supplied by the relevant BDK. It is not clear in some instances whether this means the value is zero or whether the data was just not available.

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Table 9 provides an overview of the facilities available at the 14 BDKs, while Table 10 focuses specifically on ICT facilities. Based on the information available, at present six BDKs and the Pusdiklat training center have computer labs available. All have libraries. All BDKs have access to electricity, water, toilets, roads, and the internet. Table 9 Facilities available at BDKs42

BDKs Lodging Classrooms Computer lab

Science Lab

Language Lab

Library Desks Chairs

No. Room

Capacity No. Room

Capacity

Aceh 21 42 2 80 1 53 370

Ambon 80 160 5 40 1 1 1

Denpasar 22 45 4 80 1 2 124 258

Banjarmasin 1

Bandung 55 151 4 120 1 1 1 1

Jakarta 94 184 5 150 1 1

Makassar 88 217 6 240 1 1

Manado 57 175 4 160 1 60 180

Medan 106 212 7 450 1 2 1 546 1121

Padang 75 150 5 150 1 1 155 200

Palembang 70 156 4 160 1 1 88 168

Papua 1 60 120

Semarang 125 250 7 250 1 1 1 1 735 1170

Surabaya 83 332 10 320 1 1 1 1 400 500

Pusdiklat 45 135 6 180 1 1 1 1 150

Use of ICT at BDKs

Given the scope of need for teacher professional development it is essential to consider how ICT might be used to reach larger number of teachers than is possible with face-to-face training. An overview of ICT facilities available per BDK is presented in Table 10. Table 10 ICT facilities available at the BDKs43

BDKs Number of computers

Administration Student Staff Instruction

Aceh 0 0 19 9

Ambon

Denpasar 31 36 31 36

Banjarmasin

Bandung

Jakarta 5 40 30 10

Makassar 11 6 0 9

Manado 5 4 6 8

Medan 4 0 78 32

Padang 5 24 5

Palembang 6 30 22 4

Papua

Semarang 75 20 25 20

42 Where cells are blank, this is because no data was supplied by the relevant BDK. It is not clear in some instances whether this means the value is zero or whether the data was just not available. 43 Where cells are blank, this is because no data was supplied by the relevant BDK. It is not clear in some instances whether this means the value is zero or whether the data was just not available.

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BDKs Number of computers

Administration Student Staff Instruction

Surabaya 8 32 30 10

Pusdiklat 50 20 35 15

Use of ICT for educational purposes by is summarized in Table 11 and the use of ICT for administrative purposes is shown in Table 12. Table 11 BDKs’ ICT usage for educational purposes

BDK Examples of ICT use for educational purposes

Aceh Using Facebook and WhatsApp

Ambon Using E-form/Google form for training evaluation, uploading training materials for instructors /participants.

Denpasar Internet as instructional media, looking for the references, tool for evaluating instructors and committee, and media communication.

Banjarmasin No data

Bandung ICT for DJJ and e-learning. Social site, video call, and WhatsApp

Jakarta Website BDK Jakarta, Sistem Informasi Kediklatan, E-mail BDK, Facebook DJJ Balai Diklat Jakarta, e-office SIBADAK.

Makassar Using E-form/Google form for training evaluation, uploading training materials for instructors /participants.

Manado Using Facebook and WhatsApp

Medan ICT for DJJ and e-learning, social site, video call, and WhatsApp

Padang Facebook, Instagram, websites.

Palembang Website, e-info diklat, Facebook, Instagram

Papua No data

Semarang Using distance training/online training, Training information, Online test, E-registration, Training Implementation Evaluation, Training need assessment.

Surabaya Website BDK Surabaya, Sistem Informasi Kediklatan, E-mail BDK, Balai Diklat Jsurabaya, e-office SIBADAK

Pusdiklat Using website, e-info diklat, Facebook, Instagram

Table 12 Use of ICT for administrative purposes

Training Center Examples of ICT use for Administrative purposes

Aceh Using internet banking for payment, Simdiklat/Simak BMN, SAS applications

Ambon Using internet banking for payment, Simdiklat/Simak BMN, SAS applications.

Denpasar As media for mailing, process of registration for training participants, and so on.

Banjarmasin No data

Bandung Using internet banking for payment, Simdiklat/Simak BMN, SAS applications

Jakarta E-Rekon, Simpeg, Satu Dja, website Diklat DJJ, e-Rekon , Simpeg, e-office SIBADAK

Makassar Using internet banking for payment, Simdiklat/Simak BMN, SAS applications.

Manado Using Simdiklat

Medan Invitation to training participants, registration on-line through Simdiklat, using office application.

Padang WhatsApp group, e-mail

Palembang Using website Balai Diklat Keagamaan Palembang, sismlitbangdiklat, infodiklat, e-Rekon, Satu Dja, Simpeg, e-office SIBADAK

Papua No data

Semarang ICT implementation, email for correspondence, financial reporting, cash management system, preparation report, meal bidding procurement.

Surabaya Invitation to training participants, registration online through Simdiklat, using office application.

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Training Center Examples of ICT use for Administrative purposes

Pusdiklat Website, SIMDIKLAT, Simak BNM, Simpeg, e-office, WhatsApp.

Modes of training offered and approaches to assessment

Five primary types of training delivery are offered by BDKs. These are: • On-campus Training: this typically consists of 20 to 40 participants in each class at the BDK campus. • Workplace training (Diklat in the Work Area or DDWK): this is substantive technical training based

on the requirements of the relevant training authority. DDWK consists of 20 to 40 participants in each class and it is conducted off campus.

• Apprenticeships (Diklat in the workplace or DDTK): this is substantive technical training based on the requirements of the relevant training authority. DDTK is conducted in the trainee’s workplace in the form of direct mentoring or guidance by instructors (widyaiswara), and it consists five to ten participants.

• Online/distance training (Diklat Jarak Jauh or DJJ): this training is conducted in virtual classes through online media that comprise 20 to 40 participants in each class. As with the other modes of delivery, DJJ is also aligned with the relevant training authority’s requirements.

• Collaborative training with other agencies (Diklat Kerja Sama or DKS): this is based on work agreements between the training institution and other institutions or communities in accordance with the functional training authority and its technical substantive training requirements. DKS usually consists of 25 to 40 participants in each class.44

BDKs may offer some or all these types of training, depending on their capacity and contextual requirements. Types of training delivery offered by BDKs are summarized below. The two forms of workplace training appear to be less commonly offered than on-campus, distance and collaborative training. Table 13 Mode of Training Delivery

Training Center On campus DDWK DDTK DKS DJJ

Aceh Yes Yes Yes No No

Ambon Yes Yes Yes Yes No

Denpasar Yes Yes No No No

Banjarmasin Yes Yes Yes Unknown Unknown

Bandung Yes Yes Yes Yes Yes

Jakarta Yes Yes Yes Yes Yes

Makassar Yes Yes Yes Yes No

Manado Yes Yes Yes Yes No

Medan Yes Yes No Yes Unknown

Padang Yes Yes Yes Unknown Unknown

Palembang Yes Yes No No No

Papua Yes Yes No No No

Semarang Yes Yes Yes Yes Yes

Surabaya Yes Yes No Yes No

Pusdiklat Yes No No No No

44 DKS could be offered with Maarif, Muhammadiyah, KKGs, MGMPs, KKMs, Pokjawas, or other institutions, based on the decree of Head of Research and Development and Training and Education of MoRA No. 685/2018 that DKS is a form of education and training diversification based on a memorandum of understanding or a memorandum of cooperation between educational institutions in MoRA and other institutions and/or the community by taking into account the need to develop the competence of state civil apparatus in institutions and/or community partners.

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Although not available per mode of delivery, Table 14 shows the numbers of people trained per BDK in 2018 and 2019. Across these two years, BDKs trained a total of 117,238 people. The largest number of people trained was reported by BDK Surabaya and the smallest number by Papua BDK. In most cases, with a couple of exceptions, slightly more teachers were trained in 2019 compared to 2018, which suggests some growth in training capacity. Table 14 Numbers of people trained per BDK in 2018 and 2019

BDKs Year Total 2018 2019

Aceh 2344 2660 5004

Ambon 2603 3285 5888

Denpasar 2120 2160 4280

Banjarmasin 3170 4300 7470

Bandung 5400 6714 12114

Jakarta 4638 5835 10473

Makassar 3384 3952 7336

Manado 2804 3168 5972

Medan 3354 4970 8324

Padang 3760 6634 10394

Palembang 4410 4395 8805

Papua 360 0 360

Semarang 5533 5815 11348

Surabaya 6486 7664 14150

Pusdiklat 2810 2510 5320

TOTAL 55194 66081 117238

To better understand effectiveness of online delivery (DJJ) for teacher capacity building, a short survey was sent out to the participants of BDK Semarang’s online courses. The survey was completed by 64 participants. The figure below shows the overall positive ratings (blue in the graph) that participating teachers gave of their experiences of the online course. The survey findings highlight the potential that this mode of delivery offers for reaching teachers who have not been able to benefit from face-to-face training provided by the BDK. Infrastructure challenges like reliable electricity access and internet connectivity with enough bandwidth need to be addressed though for online provision to be effective (for additional information see Case Study 4 in Appendix 6).

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Figure 6 Participant ratings of online course

BDKs were also asked to provide information about how they approach assessment of the training courses they offer. As table 15 shows, all BDKs have assessment approaches in place, but the extent of these appear to differ. In some cases, assessment consists only of testing before and after training, while in others, more complex assessment approaches are followed. Table 15 Summary of BDK assessment approaches

Training Center Assessment Approach

Aceh Assessment of training is conducted during and after the training

Ambon Assessments of training is conducted during and after training. The participant’s knowledge, attitude, and practice are assessed during the in-class training. The after in-class training assessment is done through the development of RTL (follow-up plan) made by the trainee within a maximum of 1 (one) month period after the in-class training.

Denpasar Test before and after the training.

Banjarmasin Test before and after the training.

Bandung • Assessment before training is carried out by the MORA provincial Office for the selection of trainee candidate competencies;

• Assessment of participants during the training is conducted by the trainer (widyaiswara) through a pretest and post-test; and

• Assessment after training is carried out by the trainer together with the trainees in the form of developing an RTL (follow-up plan).

Jakarta Based on AKD (Analisis Kebutuhan Diklat/training need assessment).

Makassar Assessments of training are conducted during and after the training.

Manado Evaluation and monitoring.

Medan Test, non-test, observation, objective test, essay test, performance, project, product, portfolio, questionnaire.

Padang Assessment test base and attitude base (cognitive and skills).

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

I can apply what I have learned in this course in my classrooom

This course has been worthwhile experience

I would