Implementation of Basic Infrastructure Education in Demak CoastalRegency
Hartuti Purnaweni1,2.*
and Endang Swastuti3
1 Public Administration Department, Faculty of Social Science and Political Science2 Study Program of Environmental Science, School of Postgraduate Studies, Universitas Diponegoro, Semarang 50275, Indonesia3 Economics Faculty of Tujuh Belas Agustus University, Semarang, Indonesia
Abstract. The most important public services given by state according to public administration sphere areeducation and health services. Education is very strategic aspect and is very influencial to human and alsothe nation’s productivity. However, in Indonesia education service implementation is still very complex,with clear disparity in educational service, showing that there has been inequality in educational servicehandling. Therefore the government implements minimum educational service standard of basic education.This research was aimed at evaluating the fulfillment of the Minimum Service Standard (MSS) for BasicEducation in Demak Regency, which in fact a coastal area with various physical and environmentalproblems. This descriptive qualitative research was done through interview, and analysis on secondary data.It was found that inequality of educational service was proved by the gap of achievements of the basicservice requirements in terms of Government responsibility. Therefore the research recommended that thelocal government should provide greater budget for MSS for Basic Education, and by incorporating theaccomplishment of the MSS into its Local Medium-term Development Plan (RPJMD), and Strategic Planfor Demak Regencial Office of Education, besides arrange cooperation with private sector.
Keywords: Public Service; Basic Education; Minimum Service Standard; School.
1. Introduction
The most important public services given by stateaccording to public administration sphere are educationand health services. Education is very strategic aspectsince human quality is very much affected byeducational background and is very influencial to humanand also nation’s productivity. Nelson Mandela wasquoted as saying that “education is the most powerfulweapon which you can use to change the world.” Biljanaquoted that everything is based on education[1]. Withouteducation, at least basic education, it is difficult forpeople to participate actively in the globalization era andreach opportunities provided by it[2]. Therefore,developing educational sector always become importantfocus and goals of a nation [3]
Education is important, not only for individuals, butalso for the whole process of national development. Iteven is more important for developing countries such asIndonesia. An educational process is expected to achieveoptimal results to fulfill the needs for educated humanresources. Once high quality human resources have beenachieved, a nation can keep the pace of either national orglobal development.
In educational system, especially related toschooling, there is a demand for quality assurance and
good educational service, for qualified education is patrtof public accountability. All educational stakeholderscovering parents, working arena, society, and thegovernment, each has its own role and interest in theprocess of creating qualified education. Sinergy amongthese stakeholder components is mandatory in theeducational sphere; especially education is one amongthe most important aspects of human life [4].
Indonesia has set ambitious goals for its social andeconomic development, for which human capitaldevelopment is crucial. There are significant progresseson many fronts in the education sector today comparedto six decades ago[5].
However, Indonesia still faces difficulties to provideeducational services for its entire people. Educationalservice disparity is still apparently occurring in severalregencies/ municipalities. It raises a problem concerningpoor education quality at every educational level andunit, in particular that of elementary and secondary ones.Therefore, the government set Compulsory Educationfor students up to Junior Secondary, which meanscompulsory basic education for children up to 15 yearsold. Moreover, the Law No 20/2003 on NationalEducation System article 49 stipulates that other thanteacher’s salary and official daily activity cost, thegovernment allocates 20% of the National Income and
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Spending Budget (APBN) and Local Income andSpending Budget (APBD) for education.
In order to implement good education, thegovernment set various standards for basic educationservice. The government ammended the Decree of theMinister of National Education No 15/2010 on theMinimum Service Standards for Basic Education inRegencies/Municipalities, with the new Decree of theMinister of Education and Culture No 23/2013 onAmmendment for the Decree of the Minister of NationalEducation 15/2010 on the Minimum Service Standards(MSS) for Basic Education in Regencies/Municipalities[6,7]. Standards can also form the base for curriculum,instructional assessments, parenting education, andmonitoring and evaluation[8].
With more than 50 million students and 2.6 millionteachers in more than 250.000 schools, it constitutes thethird biggest education system in Asia and fourth in theworld (after China, India and USA). Two ministers areresponsible for managing this system, with 84% schoolsunder the Ministry of Education and Culture (MoEC)and 16% under the Ministry of Religious Affairs MoRA[9].
The implementation of the MSS aims to ensure thatevery school under MoEC and every madrasah (schoolunder MoRA) fulfills the minimum standards necessaryfor providing adequate learning process. The Decree ofthe Minister of Education and Culture 23/2013 providesexplanations about definition, methods for measuringindicators, analysis of cost needed for fulfilling theMinimum Service Standards, and efforts to incorporatethe standards into local achievement documents.
According to 2017 data from Indonesian Ministry ofEducation and Culture [10], more than 70% of primaryschools in Indonesia have increased their achievement inMSS of Basic Education in 2014-2017 through CapacityEnhancement for MSS Program. Meanwhile, around 100municipalities/ regencies have been developing road mapfor meeting measurable MSS. This is part of thegovernment’s decentralization policy which is aimed torealize the people’s prosperity through improvingservices, empowerment, community participation, andenhancement of regional competitiveness.
There have been several researches done on the MSS,such as one done at Central Lampung Regency byHidayati [11] which showed that the MSSimplementation in Primary School has been runningbased on the regulations and meets the criteria as statedin the Minister of National Education 15/2010, involvingall stakeholders. However, there are problemsencountered in the forms of less active communityparticipation and communication between parents andthe school, although moral and material supports of theschool principal is maximum.
Sarbaini [12] found that the highest achievementcompared to standard in the Minimum Service Standardfor Junior High School in Tanah Laut Regency is theavailability of text books, the number of teachers foreach subject, as well as the number of classroom,furniture and blackboards. And this is not a single fact inonly a regency. There are a number of articles discussingMSS in terms of the number of schools and classrooms,
support facilities, teachers, education staff, includingbooks and teaching media, and others. These are relatedto the 27 indicators which have to be fulfilled as theresponsibilities of the Government (local) and theSchool. The minimum standard is needed as base line toachieve the Education National Standard stipulated bylaw.
MSS must be also fulfilled in Demak Regency.Demak is a coastal regency located adjacent toSemarang, the capital of Central Java. It has severeenvironmental problem in its coastal area [13], causingeconomic problem to the regency in terms of naturalresource development. Therefore, education is moreneeded to enhance its human resource.
The regency was one of those surveyed by the WorldBank in its 2010 program namely Basic EducationCapacity Building. The survey, which comprised 50surveyed samples, revealed that Demak was ranked 13th(60.99%) in education service.
This article provides analysis on the achievement ofDemak Regency in achieving the Minimum ServiceStandard (MSS) in 2015 in terms of Demak Governmentresponsibility.
2. Methodology
This research used interview data with thegovernment personnel (from Demak Regencial Office ofEducation, Youth, and Sport Affairs; and RegencialOffice of Religious Affairs); four school principals andfour teachers (half were each from MoE and MoRAschools) who were randomly chosen during MSSsocialization meetings for school teachers and schoolprincipals in March and October 2015. Secondary datawas gained from Demak 2014 Status QuoAssessment/SQA Survey[14], in investigating the gapbetween the real achievements and the standards as setout in MSS in terms of the Government responsibility.
3. Discussion
A well-structured Medium-term Strategic Plan hasbeen established by the Demak Regencial Office ofEducation, Youth, and Sport Affairs for 2012-2016towards a successful educational development in theregency in line with its predetermined goals. The Plan isincorporated within Demak 2011-2016 Local Medium-term Development Plan/RPJMD [15], i.e. “Towardsprosper, advanced, self-sufficient, and competitivesociety wihin conducive, religious and democraticenvironment”.
Furthermore, this Medium-term Development Planalso elaborates the vision of Demak Regencial Office ofEducation, Youth, and Sports Affairs which amongothers setting high quality education through themissions of among others towards distributed and far-reaching access to education.
The Decree of the Ministry of Education and Culture23/2013 on Minimum Service Standards (MSS) forBasic Education requires a pivotal performance indicatorfor basic education service provided by
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regencies/municipalities. It also binds size and quality ofeducation service quality offered by Demak RegencialGovernment, either directly or indirectly at schools andmadrasahs (Islamic schools). The fulfilment of the needsfor basic education is indicated by the following aspects:adequate education facilities and infrastructures; highquality and competent teachers and teaching staff; goodcurriculum; good educational evaluation system; goodeducational quality control; and establishedschool/madrasah management.
The MSS comprises 27 indicators and 57 sub-indicators dealing with facilities and infrastructures,teachers and teaching staff, curriculum, evaluation,quality control, and school/madrasah (Islamic school)management. The government is responsible for meeting14 indicators.
From the analysis of the result of Status QuoAssessment (SQA) Survey 2014 it is found that DemakRegency had fulfilled 7 standards but not for the other 7standards in terms of the Government responsibility infulfilling the MMS. The Government of Demak Regenchad 100% fulfilled seven indicators (1,5,6,7,9,10,12) asshown in Table I:
Table 1. Government’s FulfilledMSS Indicators
Name ofIndicator
Description IndicatorFulfillment
Indicator 1 the availability ofelementary and secondaryschools with a distanceranging from 3-6kilometers from remoterural permanentsettlements
100 %
Indicator 5 each elementary schoolhad a teacher/student ratioof 1:32 and four teachersfor each educational unit
100 %
Indicator 6 each secondary school hada teacher for each course
100 %
Indicator 7 two teachers heldacademic qualifications ofS1 and D4 and teachingcertificate
100 %
Indicator 9 each secondary school hadteachers with S1 and D4academic qualificationsand teaching certificatesmajoring in mathematics,natural science,Indonesian, andcitizenship educationcourses
100 %
Indicator10
all principals of theelementary school held S1or D4 academicqualifications and teachingcertificates
100 %
Indicator12
each regency hadelementary schoolmonitoring and evaluationofficers hold S1 or D4academic qualifications
100 %
Whereas, indicators that the government of DemakRegency had not been successfully taking itsresponsibility to fulfill MSS indicators (2,3,4,8,11,14)were as shown in Figure 2 (Government’s UnfulfilledMSS Indicators). Interviews with the informants foundthe causes of the inequalities, among others are:
1. Schools under the Ministry of Religious Affairs(MoRA) or madrasahs had not obtainedadequate extension and funding from theRegencial Government and CentralGovernment compared to that of under theMinistry of Education and Culture (MoE), andtherefore causing inequality that teacherswithout S1 or D4 qualifications were mostlyfound at the schools run by MoRA
2. School Principals found many problems foracquiring teaching certificates
3. The monitoring and evaluation officer visits tothe schools did not take place regularly andlasted less than three hours per visit because ofthe vast coverage of monitored area, number ofschools, and limited operational fund.
Table 2. Government’s UnfulfilledMSS Indicators
Name ofIndicator
Description IndicatorFulfillment
Indicator 2 maximum size of studentsper classroom forelementary school (32students per classroom)and maximum size ofstudents per classroom forsecondary school (36students per class room)
53.57%.
Indicator 3 each elementary schoolprovide scientificlaboratory with 36-studentoccupancy and aminimum of a set ofmodels for demonstrationand experiment
10%.
Indicator 4 each elementary schooland secondary schoolprovided tables and chairsfor teachers, principals,and teaching staff
47%.
Indicator 8 each secondary school hadteachers with S1 or D4qualfications (70%) and35% of them heldteaching certificates. Forspecific areas thepercentages were 40% and20%, respectively
67%.
Indicator11
each regency hadelementary schoolprincipals with S1/D4academic qualificationsand teaching ceritificates
73%.
Indicator13
each regency developedplan and implementedactivities to help theeducational units prepare
NotAvailable
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their curriculum andlearning processeffectively
Indicator14
monitoring and evaluationofficer visit to educationalunit took place once amonth and spent at leastthree hours forsupervision and extension
26%.
Other reason was because Demak is a coastal regencywhich suffers from coastal degradation because of severeabrasion in some of its villages, a condition whichaffects the life structure of the coastal area as well as thedevelopment and public administration practices in theregency since the coastal maintenance need lots of fund.This was parts of the reason that the regency has limitedbudget for its development. Furthermore, the limitedbudget also drives the lower commitment of theregencial government in allocating generous fund foreducational sector.
4. Conclusion
The study found that the there are still gap in thefulfillment of Minimum Service Standards (MSS) forBasic Education in Demak Regency, in which 14 out of27 indicators must be fulfilled by the government. Theeducational policy implementation of Demak RegencialOffice of Education, Youth and Sport Affairs had notcope with the MSS for Basic Education. There were alsoinequalities in which schools under MoE are better offcompared to schools under MoRA management. Lack ofgovernment’s commitment to allocate enough budget foreducational sector as stated in the Law No 20/2003 onNational Education System article 49 which stipulatesthat other than teacher’s salary and official daily activitycost, the government must allocates 20% of the NationalIncome and Spending Budget (APBN) and Local Incomeand Spending Budget (APBD) for education.
It is recommended: (1) Demak Regencialgovernment must prioritize budget for fulfilling theMinimum Service Standards for Basic Education for itselementary and secondary schools; (2) Demakgovernment must establish regulations which enables thesatisfactory MSS fulfilment by incorporating theaccomplishment of the MSS into its Local Medium-termDevelopment Plan (RPJMD), Strategic Plan for LocalApparatus Organization (Renstra OPD), in particularthat of dealing with the strategic plan for the DemakRegencial Office of Education, Youth and Sport Affairs;(4) Better support from MoRA for the schools under itsmanagement in terms of higher budget and bettercooperation with the external agencies or privateinstitutions for extra funding.
References and Notes
1. P. Biljana, D. Koceva, T. Ulanska, and S. S.Kirova, Primary school education: Standards forstudent's assessment in primary school, Procedia-
Social and Behavioral Sciences, 2, 2: [2366-2370](2010).
2. M, Manan, The Implementation of the Right toEducation in Indonesia, Indonesia Law Review, 1:[51-68] (2015).
3. Suyanto, 2002, Tantangan Global PendidikanNasional: Pendidikan untuk Masyarakat IndonesiaBaru), Jakarta: Grasindo
4. Setiawati, Esti, Studi analisis kebijakanimplementasi Standar Pelayanan Minimal (SPM)Pendidikan Dasar, Jurnal Riset Daerah (KabupatenBantul), Vol XII, No.3, (2017)
5. OECD/Asian Development Bank, Education inIndonesia: Rising to the Challenge, OECDPublishing, Paris, Retrieved fromhttp://dx.doi.org/10.1787/9789264230750-en on 17October 2017 (2015).
6. Decree of the Minister of National Education No15/2010 on the Minimum Service Standards forBasic Education in Regencies/Municipalities.
7. Decree of the Minister of Education and Culture No23/2013 on Ammendment for the Decree of theMinister of National Education No 15/2010 on theMinimum Standards for Basic Education Service inRegencies/Municipalities
8. S. L. Kagan, E. Castillo, R. E. Gomez and S.Gowani, Understanding and Using Early LearningStandards for Young Children Globally,International Journal of Child Care and EducationPolicy, 7, 2, [53-66] (2013).
9. World Bank, World Bank and Education inIndonesia, 2015, http://www.worldbank.org,retrieved on 4 October 2017.
10. Ministry of Education and Culture, PemenuhanStandar Pelayanan Minimal Sekolah Dasar diIndonesia Meningkat,https://www.kemdikbud.go.id/main/blog/2017/11/,20 November (2017)
11. Hidayati, Nurlatifah, R. Gunawan Sudarmanto,Irawan Suntoro, Implementasi PelaksanaanStandar Pelayanan Minimal Pendidikan DiSekolah Dasar, Jurnal Manajemen MutuPendidikan, Vol 1, No 1 (2013).
12. Sarbaini, Suwoto, Dana Saputra, KajianImplementasi SPM SMPN di Kabupaten TanahLaut, Provinsi Kalimantan Selatan, kerjasamaBalitbang Kementerian Pendidikan danKebudayaan dengan Bappeda Kabupaten TanahLaut, (2015).
13. Purnaweni, Hartuti, Kismartini, Sudharto P.H,Tri R.S, Challenges for the Development ofResilient Coastal Area Program in TimbulslokoVillage Sayung District Demak Regency by.Advance Science Letter, Vol 23, 3, [2582-2583](2017), https://doi.org/10.1166/asl.2017.8711
14. Demak 2014 Status Quo Assessment/SQASurvey, (2014)
15. Demak 2011-2016 Local Medium-termDevelopment Plan/RPJMD, (2011)
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