Document of The World Bank FOR OFFICIAL USE ONLY A /. ;v >2-, -1,2-A, ReportNo. 5124-IND STAFF APPRAISAL REPORT INDONESIA SECONDARY EDUCATION AND MANAGEMENT TRAINING PROJECT September 26, 1984 Projects Department East Asia and Pacific Regional Office hisdocument hasa restricted distribuion sand may be used by recipents only inthe perfornmance of their offiia duties. Its contents may not otherwise be dislosed wihout World DBak authorization. Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized
Transcript
Document of
The World Bank
FOR OFFICIAL USE ONLY
A /. ;v >2-, -1,2-A,
Report No. 5124-IND
STAFF APPRAISAL REPORT
INDONESIA
SECONDARY EDUCATION AND
MANAGEMENT TRAINING PROJECT
September 26, 1984
Projects DepartmentEast Asia and Pacific Regional Office
his document has a restricted distribuion sand may be used by recipents only in the perfornmance oftheir offiia duties. Its contents may not otherwise be dislosed wihout World DBak authorization.
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CURRENCY EQUIVALENTS
Currency Unit = Indonesian Rupiah (Rp)
US$1.00 = Rp 1,000
FISCAL YEAR
April 1 - March 31
SCHOOL YEAR
July 1 - June 30
PRINCIPAL ABBREVIATIONS AND ACRONYMS USED
BALITBANG - Office of Educational and Cultural Research andDevelopment, Ministry of Education and Culture
BAPPENAS - National Development Planning BoardDIKMENUM - Directorate of General Secondary Education
(in the Ministry of Education and Culture)GTZ - German Agency for Technical CooperationIKIP - Teacher Training CollegeMEC - ministry of Education and CultureMITU - Management Training UnitPKG - Inservice Teacher Training Program - First PhasePPI - Entrance examination for ten senior public
universitiesPUSDIKLAT - MEC Center for Staff TrainingRepelita IV - Fourth Five-Year Development Plan (1984/85-1988/89)SD - Primary schoolSMA - Senior General Secondary EducationSMP - Junior General Secondary EducationSPG - Senior Secondary Teacher TrainingSPKG - Inservice Teacher Training Program - Second Phase,
conducted at local levelSPP - Public school fees contributed by parents
FOR OFFICIAL USE ONLYINDONESIA
SECONDARY EDUCATION AND MANAGEMENT TRAINING PROJECT
STAFF APPRAISAL REPORT
Table of Contents
Page No.
BASIC DATA ............................. i
LOAN AND PROJECT SUMMARY ............................. ........... . ii-iii
I. THE SECTOR ............. .................................... 1
Libraries and Textbooks..o .......... o .......... 5Teacher Multiple Employment......... .................... 5
Secondary School Equity. .... ................... ...... 6Financing Secondary Education .......... o............. . 6Action Program to Improve General Secondary Education ..... 6Management Skills in the Education Sector ................. 7
Government Strategy and Bank Role ...... .......... 7Rationale for Bank Involvement in the Project ............... 8
II. THE PROJECT ......................... 9
Project Objectives and Scope ........................ ..... 9General Secondary Education ..................... oo .......... 9Education Sector Management Training Program ............. 12Preinvestment Studies and Project Evaluation ... ...... 12Project Management .................................... 13
Implementation .................... ........ 13Status of Project Preparation ........pan.......... 13Cost Estimates and Financing Plan................. o ......... 14Recurrent Costs ............................................. 17
Maintenanet .......... 17
This report is based on the findings of an appraisal mission to Indonesia inDecember 1983. Mission members included J. van Lutsenburg Maas (missionleader), D. Lewis (architect), B. Makau (examinations specialist, consultant)and C. Bayulken (editor). A postappraisal mission, comprising J. vanLutsenburg Maas (mission leader), R. Montague (architect), C. MacAndrews(management trainer, consultant), and R. Egan (operations assistant) visitedIndonesia in April/May 1984.
IThis document has a restrted distbution and may be used by repients only in the perfomnc ofIr offiki duteu Its contents may not otherwise be disosed without Wodd Bank autoizaio
Page No.
Disbursements .................. ....... ..................... * 18Auditing and Reporting ...................................... 18Benefits and Risks .......................................... 18
III. AGREEMENTS REACHED AND RECOMMENDATION ........ .............. 19
TABLES IN TEXT
2.1 Suimmary of Project Costs by Component ....................... 152.2 Financing Plan ............................................... 16
ANNEXES
1. Comparative Education Indicators
2. Education System
Chart 1: Education Structure, 1984Chart 2: Organization of the Ministry of Education and CultureChart 3: Organization of the Directorate of General Secondary
Education
3. Secondary Education Action Programs
4. Projected Growth in General Secondary Enrollment, 1984/85-1994/95
5. Teacher Improvement
Table 1: Estimated Supply of Teachers by Subject, 1983/84-1988/89Table 2: Planned Training of Key Teachers by Subject (PKG), 1984-89Table 3: Planned Improvement of Teachers by Subject (SPKG), 1984-89
6. Examinations Center
Chart 1: Organization of the Center for Research and Development ofExamination System
7. Management Training Program
8. Project Costs and Implementation
Table 1: Estimated Costs per Year of Implementation, by ProjectComponent
Table 2: Summary of Project CostsTable 3: Technical Assistance and FellowshipsTable 4: Project Expenditures by Procurement CategoryTable 5: Estimated Schedule of Disbursements
Chart 1: Implementation Schedule
9. Selected Documents and Data Available in the Project File
MAP
INDONESIA
SECONDARY EDUCATION AND MANAGEMENT TRAINING PROJECT
Basic Data /aGeneral
Population (millions) 152.6Annual growth (Z) 2.2
Labor force (millions) 54.3Participation rate (Z) 52.6
Employment by sector (Z):Agriculture 55Industry 13Services 32
GNP per capita (US$)(1983) 580
Education
Labor force by educationlevel (1980) Primary & below Secondary Higher
Number (millions) 45.9 5.7 0.4Distribution (Z) 88.3 10.9 0.8
Enrollment (millions) (1982/83)
SecondaryPrimary Junior Senior Higher
Public 22.5 2.38 1.07 0.24Private 2.2 1.89 1.18 0.27
Total 24.7 4.27 2.25 0.51
As Z of age group 100 41 24 4
Public Education Budget (1982/83)As percentage of GDP 2.4As percentage of total budget for public expenditures 7.2
/a Data are for 1982 or the 1982/83 schooL year unless otherwise stated.
Sources: Ministry of Education and Culture; 1980 Population Census, Bureau ofStatistics, Jakarta; Country Economic Memorandum, World Bank, 1983.
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INDONESIA
SECONDARY EDUCATION AND MANAGEMENT TRAINING PROJECT
Loan and Project Summary
Borrower: Republic of Indonesia
Amount: US$78.0 million equivalent (including capitalized front-endfee)
Terms: Repayable in 20 years, including 5 years of grace, at thestandard variable rate.
ProjectDescription: The objectives of the project would be to: (a) assist the
Government to improve the quality of general secondary edu-cation and thereby raise the quality of Indonesia's humanresources for economic development; and (b) strengthenmanagement and planning skills at senior levels in theeducation sector. The project would: (i) provide in-service training for teachers of science, mathematics andEnglish and for provincial school supervisors and head-masters; (ii) improve the provision of school scienceequipment; (iii) increase the institutional capacity todevelop and operate a more effective national schoolexaminations system; and (iv) strengthen management andplanning performance in the Ministry of Education andCulture (MEC) through a fellowship training scheme and amanagement study. The main benefits of the project wouldbe to improve the quality of about 42,000 teachers in keysubject areas; increase the availability of improvedscience equipment at about 8,200 public and privatesecondary schools; strengthen the national examinationssystem; and improve the management and planning skills ofabout 250 senior MEC officials. Because this would be thefirst Bank-financed project under the Directorate ofGeneral Secondary Education and the Examinations Center,there is a risk of some delays in project implementation.The technical assistance in project management to beprovided by UNDP should reduce this risk.
Examination development 3.1 4.1 7.2Education sector management training program 1.8 5.3 7.1Preinvestment studies and project evaluation 0.5 0.5 1.0Project management support 0.8 0.8 1.6
/a Import duties or taxes on building materials would be negligible andhence have not been identified separately in project costs.
INDONESIA
SECONDARY EDUCATION AND MANAGEMENT TRAINING PROJECT
I. THE SECTOR
Overview
1. With a primary and secondary school-age population of about 46 mil-lion in 1984, Indonesia faces a difficult task in providing basic educationand pre-employment training to its children and young people. The Governmenthas made notable progress to date. Universal access to grade one of primaryschool has been virtually achieved. Dropout and repetition rates have droppedin the past decade in spite of the much larger volume of children involved.EnroLlments in primary schools grew from 13.0 million children in 1972 to 24.7million in 1982/83. At the junior secondary level, enrollment tripled from1.4 million in 1971 to 4.3 million in 1982/83 and the enrollment rate hasreached 41Z. At the senior secondary level, enrollment grew from 0.6 millionin 1971 to 2.3 million in 1982/83 resulting in an enrollment rate of 24%.
2. Despite these achievements there is an acute shortage of skilledmanpower which constrains effective implementation of development programs.Current enrollment rates in both secondary education (35%) and highereducation (4%) are still well below recent Regional averages of about 44% and13% respectively. Substantial investment in the education system beyond theprimary level is required, in particular to increase the supply and quality ofsecondary school graduates who are more efficiently trainable as professional,para-professional, technical and managerial manpower. Recent tracer studieson the jobs and incomes of school-leavers from all levels of primary andsecondary education have revealed chat the economic rate of return tocompLeting secondary education is 242 for T3l types, while it is 32Z forgeneral secondary education in particular.- While these figures shoulddecline as the number of school leavers increases, the benefits of secondaryeducation are expected to remain substantial.
3. The formal education system consists of a six-year primary schoolcyc_e, junior and senior secondary cycles of three years each and post-secondary education ranging from one to six years (Annex 2, Chart 1). Thesystem is divided into several types of schools at the secondary level: juniorsecondary - general (SMP); home economics; and technical; senior secondary -general (SMA); commerce; home economics; technical; teacher training (SPG);and sports teacher training. At the junior level over 90% of enrollment is in
1/ "Secondary Education in Indonesia: Issues and Programs for Action",World Bank Report No. 4954-IND, July 26, 1984, paras. 3.55-3.56, Table3.17. These findings concur with recent World Bank studies elsewherewhich find high returns to general secondary education. See WorldDevelopment Report, 1983, page 106.
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the general schools while at the senior level the share of enrollment ingeneral secondary schools has been increasing. Demand for general secondaryeducation has already exceeded the capacity of public sector schools.Consequently, private schools have multiplied to meet demand and at the seniorsecondary level outnumber public schools.
4. The rapid growth of the education sector has strained the managementcapabilities of the Ministry of Education and Culture (MEC), which generallysuffers from a lack of adequately trained staff at the senior levels. The MECis divided into seven major branches (Annex 2, Chart 2). The SecretariatGeneral deals with administration, planning, budget and financial andpersonnel management. The Directorate General of Primary and SecondarvEducation provides inservice teacher training, and establishes and maii.cainsstandards. The Office of Educational and Cultural Research and Development(BALITBANG) collects statistical data on the system, conducts long-term plan-ning and carries out research, curriculum development and evaluation. TheInspectorate General audits the accounts and performance of the rest of theMinistry by confirming that the instructions of the Minister are implemen-ted. In addition, there are Directorates General for Higher Education, Cul-ture, and Nonformal Education, Youth and Sports. The MEC has management andplanning responsibility for 160,000 budget units; it has direct or indirectresponsibility for 1.6 million out of Indonesia's 3.0 million civil servants;and it has the largest development and routine budgets of any Ministry.
Issues
5. Now that free access to primary school has been achieved, demand forsecondary education is expected to grow rapidly. According to governmentprojections, during the Fourth Five-Year Development Plan (Repelita IV,1984/85-1988/89) junior secondary enrollments will increase by 10.4% p.a. from4.7 million in 1983/84 to 7.7 million in 1988/89, while senior secondaryenrollments will grow 11.3% p.a. from 2.5 million to 4.3 million (Annexes 3and 4). However, the country is facing severe resource constraints which willaffect development of the subsector and the Government's ability to dWel withthe main issues, namely: educational quality; equity; and financing.- Thisproject focusses on improvement in the quality of secondary education. Hence,the issues related to quality are discussed below in greater depth than theissues of equity or finance.
General Secondary Education Quality
6. One indicator that learning levels in secondary schools are low isthe fact that some public universities and teacher training institutes (IKIPs)have to admit students who scored only slightly above the random guessingscore on the multiple choice item university entrance examinations. Lowquality of learning in secondary schools can be attributed to severalsources. Among these are: a shortage of adequately prepared teachers; a lackof quality-assisting resources such as science equipment, textbooks and school
2/ These issues are treated in detail in Report No. 4954-IND.
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libraries; an ineffective system of school examinations; and the commonpractice of many teachers of teaching in more than one school and therebyscattering their attention and energy.
7. Teacher Preparation. The rapid expansion of general secondaryeducation has led to shortages of qualified teachers in mathematics, science,and English (Annex 5, Table 1). Often these subjects are taught by teacherswho have had only one or two years of postsecondary education, and it iscommon for those teachers who are qualified in these fields to spread theirteaching between two or three schools. The Government is undertaking majorefforts to overcome these shortages. Crash courses in teacher training arebeing offered by the IKIPs but the teachers graduating from such courses areunderqualified and require inservice training. A major survey of secondaryschool achievement levels in 1978 found that students taught by teachers whohave received inservice training in specific subject areas, inJuding mathe-matics, science and English, showed higher achievement levels.- In 1980, theDirectorate of General Secondary Education (DIKMENUM) (Annex 2, Chart 3) begana program to upgrade SMP and SMA teachers in these key subjects. The initialphase of the program, known as Pemantapan Kerja Guru (PKC) (translated as"fostering the work of the teacher") is an inservice approach to the upgradingof teachers. PKG was initiated with assistance from UNDP and UNESCO. Thesecond stage of the program would use the PKG-trained pool of key teachers tolead further inservice courses in Teachers Centers in all districts(kabupatens). This second phase (SPKG) would spread the teacher improvementprogram to the rest of the country and requires new financing. An externalevaluation of the program has recently found that the program s strongesteffects have been in rural schools.
8. School Science Equipment. Science equipment in Indonesian schoolshas largely consisted of imported equipment, or badly made local copies ofimported equipment. Some of this equipment is not designed to meet therequirements of the Indonesian science curriculum, and because it is importedreplacement of parts is more difficult. In addition, teachers are reluctantto make full use of it because they must pay for any damage, and the instruc-tion manuals are written in foreign languages which causes problems in its useand maintenance. As a result, students have limited opportunities to carryout experiments in class. In 1976, an MEC workshop for the development, test-ing, and production of prototypes for primary school science teaching aids wasestablished at the IKIP, Bandung. The aim was to produce suitable prototypesout of local materials. The prototypes are being given to Indonesian manufac-turers who are adopting them to raise the quality and competitiveness of theirproducts. By means of this "transfer of technology" the Indonesian schoolsystem will reduce its dependence on imports. Given the projected futuregrowth of the domestic school equipment market there are good economy-of-scalereasons for fostering a strong domestic manufacturing capability in thisfield.
3/ Report No. 4954-IND, para. 3.10 and Appendix.
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9. The initial workshop for producing equipment prototypes was supportedby the Federal Republic of Germany, which supplied machinery and tools andtechnical assistance while the MEC provided both space and local personnel.Indonesian authorities as well as outside experts have given very favorablereviews to the first phase of this program. The prototypes are being used bylocal manufacturers to produce higher quality equipment for primary scienceteaching. Therefore the Government would like to extend the program to asecond phase which would develop prototypes for local production of secondaryschool science teaching equipment.
10. At present science equipment is stored in temporary "ttransit ware-housest' which do not provide adequate inventory control, before being given totransport companies for delivery. Equipment selection is based on centrallydetermined, standard equipment sets which results in a serious mismatchbetween supplies and needs. In addition, there are long delays in distribu-tion of equipment to schools in outlying provinces. The distribution systemshould become more responsive to actual needs. This would require a newsystem comprising a central warehouse for receipt and checking of deliveries,provincial warehouses for storage and distribution of the necessary suppliesto schools, and a network of key science teachers who can diagnose problemswith faulty equipment and either repair it or send the item back to suppliersfor repair.
11. With the rapid growth of enrollments taking place at present, moreequipment is needed in the short- as well as the long-term to permit pupils toconduct science experiments in schools. This active approach is emphasized inthe PKG/SPKG inservice training program for teachers (para. 7). Thus, evenwhile science equipment prototypes are being developed for use by Indonesianmanufacturers (paras. 8-9), further large-scale importation of science equip-ment is needed over the next 3 to 4 years, mainly to meet the needs resultingfrom expansion of the secondary school system.
12. Examinations. The national grade 12 leaving and university entranceexamination was abolished more than ten years ago. For the past decade,schools have set their own leaving examinations. However, the autonomy givento schools has made it difficult to establish national standards in theassessment of either school or student performance. Schools and teachers areunwilling to fail too many students and consequently the final examinationresults and graduation certificates carry little weight with prospectiveemployers, postsecondary institutions, or the students themselves.
13. When secondary schools began to set their own leaving examinations,groups of public universities began to set common entrance examinations inorder to have objective, standardized criteria for selecting among studentapplicants. In addition, entrance examinations have been conducted by manyindividual private universities. These university selection examinationslargely fulfilled their function of safeguarding standards of education inpublic universities. However, they also exert a negative influence over whatis actually taught in the upper grades of the senior general secondary school.The examination questions have been entirely multiple-choice based. Someimportant intellectual and application skills which have not been tested, forexample, writing continuous prose, have therefore been ignored by teachers and
students alike. Furthermore secondary school teachers have had little or noinput into determining examination questions and have received no feedback onschool or student performance in the areas of knowledge which have beentested. The schools and the MEC therefore have been excluded from importantinformation for monitoring the actual cognitive performance of the schools.If appropriately analyzed and reported such information could be used tocorrect teaching methods or to emphasize important topics which have beenoverlooked, and to stimulate local education officials and school principalsand teachers to improve the performance levels of their schools and classes.Reform of the examinations system including the creation of a performancefeedback system is clearly necessary and could contribute significantly to animprovement of the quality of education at a relatively low marginal unitcost. With the continued use of examination fees, the system can remainvirtually self-financing. Consequently, examinations have become an obviousfocus for institutional development in che education sector.
14. The Governmenc has recently decided that from 1984, selection forpublic university and IKIP entrance will be based on both in-school assessmentand a single centrally administered examination. To implement this policyeffectively, multiple choice items need to be improved and new examinationtools and machinery need to be designed. These include changes such as thetesting of writing and laboratory skills and the opening of many more testingsites so that students in outlying areas will have more opportunity to takethe examination. Whereas the previous university entrance examinations havebeen conducted by ad hoc committees of MEC and university officials, the MECnow intends to pass this responsibility on a regular basis to its ExaminationsCenter, which previously has developed tests and test items for other parts ofMEC to use. Therefore the Examinations Center will need technical, materialand financial support in order gradually to carry out this added responsi-bility.
15. Libraries and Textbooks. Recent studies on school quality inIndonesia have pointed out the great importance of school libraries and bookholdings in accounting for levels of academic achievement. According to theMEC only about 450 out of 18,000 secondary schools have acceptable schoollibrary facilities. Recognizing the importance of improving libraries ofvarious types, the MEC has recently requested the UNESCO/World Bank Coopera-tive Program to undertake a survey of investment priorities and strategies forlibrary development, with a view to a separate project in this area. The Bankhas already financed two projects to develop school textbooks.
16. Teacher Multiple Employment. The practice of "multi-jobbing" bysecondary school teachers has had a negative effect on school quality. Due tocontinuing teacher shortages this practice is likely to continue even if theGovernment raises teacher salaries significantly in real terms. Because ofbudgetary constraints, however, it is unlikely to do this in the foreseeablefuture. Meanwhile, the World Bank is assisting the Government under theSecond Teacher Training Project (Loan 2101-IND) to expand the output of newlytrained teachers from the IKIPs.
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Secondary School Equity
17. Until recently new secondary schools in Indonesia tended to be locatedin cities and towns in response to greater social demand in those areas. Inaddition, boarding facilities are uncommon. Consequently bright children fromrural areas were forced to migrate to urban areas simply to enter secondaryschool. Not surprisingly, therefore, urban areas on average have about stimes as much representation in senior secondary schools as rural areas.- In1982, the Government took a major step to redress this inequity by financingconstruction of over 1,000 new public secondary schools in rural areas, and itis expected that future capital expansion will continue this policy. Furthermeasures to improve equity include facilitating access to the nationaluniversity entrance examinations for secondary school graduates in the moreremote provinces (para. 14), and, through the proposed project, improving thequality of teaching in science, mathematics and English, particularly in ruralschools where teachers have traditionally been weakest. This would be done bylocating more inservice teacher courses and Teachers Centers in rural areasand improving access to school science equipment.
Financing Secondary Education
18. The rapid growth of secondary education would pose considerablefinancial burdens if the full cost were to be borne by the central Govern--ent. However, in practice, the Government has usually financed only a smallshare, between 10 and 20X, of all expenditures on secondary education becausethere are so many private schools, and because even pulb ic schools charge somefees while providing virtually no boarding facilities.- In these respectsthe school system in Indonesia is similar to that of the Philippines, Koreaand Thailand, where private initiatives plAv a key role in reducing theGovernment's recurrent cost burden. Fu-:Zhermore, the annual rate of increasein the Goverrment's routine budget is not allowed to exceed about 3% p.a.while enrollments recently have Leaped by more than 10% p.a. Since theroutine budget is used mainly to pay salaries, most expenditures for educa-tional materials are financed by "projects" under the annual developmentbudget.
Action Program to Improve General Secondary Education
19. The Government has been increasing the education sector's share ofthe development budget in recent years and this will necessarily continuethrough Repelita IV if quality is to be maintained in the face of continuedrapid enrollment growth. It is estimated that simply to accommodate projectedgrowth in public schools, without any increase in resources per user, theoverall secondary budget will need to grow about 6% p.a. If a package ofactions to improve quality and equity, and mobilize local community resources
4/ Report No. 4954-IND, Appendix, Figure 10.
5/ Ibid, Table 3.8 and paras. 3.37-3.38.
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is a?ypted then it is estimated that the budget would need to grow at about 8Xp.a.- This action program is summarized in Annex 3.
Management Skills in the Education Sector
20. The NYEC is the largest Ministry in the Indonesian Government interms of budget allocations with 14.4Z of the development budget in 1983/84,and 7.3% of the total budget, both routine and development. It administerssome 1.6 million personnel or 50% of the total civil service and has manage-ment and planning responsibility for 160,000 accounting units.
21. The MEC suffers from several major problems. First, while it isadequately staffed in terms of numbers, most of its senior managers are formerschool teachers and professors who have had no preservice or inservice train-ing in management and planning. Consequently, many MEC administrators tend tosee themselves as resource spenders rather than resource managers. A large-scale training program is required for senior MEC staff in areas such aspersonnel management, financial management, budget management and accounting,quantitative planning, management information systems, organizational develop-ment, and education planning. Second, the system suffers from a rigid appli-cation of civil service regulations which place too much value on seniorityover merit. The personnel system needs to be revised to incorporate perfor-mance evaluation which would reward meritorious staff regardless of length ofservice. Finally, MEC lacks an efficient management information system toprovide information flows in such vital areas as costs, budget and expendi-tures. Trained individuals are needed in key, high-spending units to increasethe flow of management information, especially that related to the budget. Toaddress these problems and strengthen management and planning performance inthe MEC, a management study needs to be carried out. A recent World Bankstudy on Management Development in Indonesia! has shown the need for thesetypes of actions in various parts of the public sector in Indonesia
Government Strategy and Bank Role
22. With the achievement of universal access to primary education, theGovernment has decided to give major priority during Repelita IV and V tosecondary and higher education. Particular attention will be given toimproving the quality of secondary schools during a period of expected rapidgrowth. Given the growing size of the national education budget, the Govern-ment also attaches priority to improving the management efficiency of the MEC.
23. The Bank Group has supported 15 education projects in Indonesia.Five of these projects, Teacher Training I and II, Textbooks I and II, andUniversity Development I, have addressed issues reLated to secondary
education. The two teacher training projects have focussed on strengtheningthe secondary schools that are preparing primary school teachers and thecolleges which give preservice training to secondary school teachers. Thesecond project is also supporting colleges for teachers of the handicapped andan incountry program to train Large numbers of mid- to low-level educationadministrators. Under the University Development I Project, the Governmentagreed to consider ways to improve university entrance procedures. The pro-posed project wouLd assist the implementation of changes in these proce-dures. The Second Textbook Project (Loan 2102-IND) has initiated the estab-lishment of a school supply warehousing system in the provinces which would bemade further use of under the proposed project. OED Project Performance AuditReports (PPARs) have been prepared for two education projects in Indonesia andthe Lessons learned have been incorporated in the design of the proposedproject. The PPAR for the Technical Education Project (Credit 219-IND)(No. 2998, dated June 2, 1980, Sec M80-440) stressed the importance of includ-ing fellowships for development of teachers and school administrators andappointing key staff for project implementation in a timely manner. The PPARfor the first Agricultural Training Project (Credit 288-IND) (No. 3508, datedJune 30, 1980, Sec M80-527) stressed the importance of advanced preparationand the need for carefully designed and suitable technical assistance compo-nents.
Rationale for Bank Involvement in the Project
24. The Bank has made no major, direct investments in general secondaryeducation in Indonesia previously. This was largely due to fears thattemporary unemployment of secondary school leavers signified a low return toan investment in secondary education which has since proved to be unfounded bythe results of a national tracer study (para. 2). The Bank's recent sectorstudy on general secondary education in Indonesia (Report No. 4954-IND), whichwas reviewed with the Government in final draft in April 1984, identifies aseries of critical policy issues and recommends programs of action to improvequality, equity, resource mobilization and cost recovery. These programs aresummarized in Annex 3. The project being proposed would incorporate some ofthe principal ingredients of those programs, especially quality improvement,and the preinvestment funds in the project would permit experiments with otheraspects of the programs. As already mentioned (para. 2), the social return oninvestments in general secondary education in Indonesia has reached above30Z. This proposed project would attempt to ensure that the quality of thateducation would improve in key areas even while it continues to expandrapidly. The reform of the examinations system (paras. 12-14) is a particu-larly important educational policy development in which the proposed projectwould invest resources. At the same time the proposed overseas fellowshipprogram for training senior MEC managers and planners would improve the pro-ductivity of this largest and still growing portion of Indonesia's publicinvestment program.
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II. THE PROJECT
Project Objectives and Scope
25. The objectives of the proposed project are to: (a) assist theGovernment to improve the quality of general secondary education and therebyraise the quality of Indonesia's human resources for economic development; and(b) strengthen management and planning skills at senior Levels in the educa-tion sector.
26. To improve the quality of general secondary education the projectwould provide funds for civil works, equipment and furniture, technicalassistance, local and overseas training, studies, and salaries andhonoraria. It would:
(a) provide inservice teacher training in science, mathematics andEnglish, and expand training of provincial school supervisors andheadmasters initiated over the past four years with UNDP/UNESCOassistance;
(b) produce equipment prototypes, using Local materials where possible,for dissemination to local manufacturers in order to develop theircapacity to manufacture secondary school science equipment;
Cc) strengthen the school science equipment distribution/storage/maintenance system through provision of warehouse facilities;
Cd) procure new stocks of school science equipment; and
Ce) increase the institutional capacity to develop and operate a moreeffective national school examinations system, by broadening thescope of work and increasing the human and physical resources of theexisting Examinations Center in the MEC.
27. To strengthen management and planning performance in the MEC theproject would provide funds for a training needs assessment and a fellowshipscheme to train present and future senior managerial and planning staff, andto carry out a management study.
28. Finally, to strengthen the capacity of the DIKMENUM and the Examina-tions Center to prepare and implement future projects, this project wouldprovide assistance for preinvestment studies, project monitoring andevaluation and project management.
General Secondary Education
29. Teacher Improvement. The project would train some 42,000 science,mathematics and English teachers at 240 nonresidential Teachers Centers underthe SPKG program (Annex 5, Tables 2 and 3). These teachers would remainon-the-job during their training which would extend over two semesters,involving both once-a-week group instruction at the Centers and on-the-job
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observation and coaching back in their own classrooms. The content of thetraining would be in subject matter, practical teaching methods, and methodsof student performance evaLuation. The trainers themselves are being trainedaccording to a "multiplier" or "cascade" design which is commonly used inIndonesia. First about 150 "instructors" are being trained in a combinationof short overseas courses and national in-country courses. Then they in turnwill train about 1,850 key teachers at regional residential trainingcenters. The key teachers (who are already partly trained from the pilotphase of the project) will actually lead the local SPKG courses in theTeachers Centers for the target group. To reinforce the newly trainedteachers in their work situation, the project would also give short orienta-tion courses to about 1,400 headmasters. To guide the training program, theproject would provide a total of about 1,600 man-months of training to about150 instructors, 80 key headmasters, 80 provincial supervisors, and threeprogram leaders.
30. Seventy Teachers Centers already operate in existing secondaryschools and new Centers are being established continually. The project wouldbuild, equip, and furnish simple facilities for about 190 of the 240 Centersin rural areas. These facilities would be located adjacent to existingschools and consist of one or two laboratory/multipurpose rooms and aworkroom. The Teachers Centers are managed by the headmasters of the schoolsat which they are located, under the supervision of the Provincial EducationOffice. Sixty-four of the 240 Centers would have a small science equipmentrepair facility. Finally this component would include about 80 man-months ofconsultant services and 24 English-speaking assistants to assist in thetraining of the national instructors and key teachers with particular emphasison English language teaching. SPKG courses have begun to take place alreadyin a few pioneering provinces. Early evaluation of PKG and SPKG trainedteachers show very encouraging results. Training within the project scopebeginning April 1, 1984 (the start of the Indonesian fiscal year) wouldqualify for retroactive financing under the loan.
31. Science Equipment. The project would assist in the provisioa ofscience teaching equipment to secondary schools in three distinct and comple-mentary ways, both short- and long-term.
32. Science Equipment Prototypes. The project would provide resourcesto extend to the secondary level an earlier project which developed prototypesfor primary school science equipment (paras. 8-9). Technical assistance(41 man-months of consultant services) and training would be given to DIKMENUMDirectorate staff and a workshop and office would be built, equipped andfurnished to create and test prototypes of secondary science equipment,adapted to the Indonesian curriculum and using local materials. These proto-types would then be disseminated to local manufacturers to improve their pro-duction when bidding for contracts to suppLy science equipment to theschools. In order to institutionalize the prototype development process,local technical and support staff would be appointed and trained both overseas(48 man-months of fellowships) and domestically. The workshop would belocated next to the proposed central warehouse for equipment distribution(para. 26(c)).
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33. Strengthening the Distribution of Science Equipment. To improve thedistribution of science equipment to schools, the project would construct,equip and furnish a central warehouse for receiving, storing, controlling anddispatching centrally-procured science equipment. This facility would beoperated by DIKMENUM staff. Two man-months of consultant's services would beprovided to assist with planning the distribution and training. The warehousewould be located adjacent to the Second Textbook Project warehouse to simpLifythe joint distribution of textbooks and science equipment. In the provincesand districts, the distribution system would make use of a new system ofregional warehouses and depots also being -rovided under the Second TextbookProject.
34. Science Equipment Procurement. While the previous two componentswould enhance the supply of equipment in the medium- to long-term, the projectwould also alleviate existing and anticipated shortages of science equipmentover the next three years by supplying sets of equipment to about 8,200schools. About 80Z of the equipment would be for new schools or privateschools which have never received equipment previously. The remainder wouldbe to restock schools where supplies have been depleted after years of use.The MEC has an annual tender for secondary school science equipment for bothnew schools and resupply of existing schools. Much of the equipment (or itscomponent parts) is imported, thus incurring significant foreign exchangecosts to the Government. The project would finance the annual tender forthree years. Procurement procedures have been reviewed and commented upon bythe Bank.
35. Examination Development. This component would increase the institu-tional capacity to develop and operate a national secondary school leaving anduniversity entrance examination system. The existing Examinations Center(Annex 6, Chart 1), in the BALITBANG, would be strengthened under the projectthrough provision of specialists (42 man-months), staff training fellowships(1,807 man-months), equipment, and a new headquarters building. The Exam-inations Center would develop the secondary school leaving examination and theexamination for entrance to higher education. Eventually these two examina-tions may merge. The Center's main functions in this area would be testdevelopment, production of test papers and their distribution, marking,grading and preparation of feedback reports to MEC officials and schools.Efficient support services would be required in the areas of: dataprocessing; printing; library and records; accounts; personnel; general admi-nistration; and external testing (for clients outside MEC). The annualoperating costs of examinations have routinely been recovered from parentaLfees and examination candidate fees. This practice would continue.
36. The project would assist in the human and physical development ofthe Center. This process will necessarily carry on for several more years andwould justify further aid. During negotiations, the Government providedassurances that staff for the additional positions being established in theCenter would be appointed in accordance with a schedule satisfactory to theBank and that a site for the Center and for other project facilities would beacquired by March 31, 1985.
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Education Sector Management Training Program
37. The training program would be primarily for overseas study invarious management and planning fields not readily available or of high enoughquality in Indonesia and would include language study (Annex 7). Where avail-able, in-country courses would be used. The specific target groups for thetraining program are as follows: (a) senior officials in the seven central MECunits; (b) senior provincial education officers; (c) future IKIP lecturers ineducation management, finance and planning; and (d) staff of MEC's Center forStaff Training. About 200 incumbents in senior positions would receive short-term training while recent graduates would follow postgraduate courses, mostlyMA (49) and some PhD (11) (for a total of 2,892 man-months). The in-countryadministration of the scheme would be done by a Management Training Unit (MTU)under the Secretary General of MEC. Standing agreements (contracts) would bemade with agencies (usually official) in each of the countries to whichfellows would be sent for the in-country supervision of the fellows. To ini-tiate the scheme, an Indonesian team, including representatives of NEC and theNational Planning Agency (BAPPENAS), would conduct a reconnaissance mission tothe countries most likely to receive fellows to identify partner traininginstitutions. Terms of reference for this mission have been prepared andreviewed by the Bank. An initital assessment of priority training require-ments has already been completed. A more comprehensive training needs assess-ment would be carried out under the MTU to guide the later years of the fel-lowship program. The Government provided assurances at negotiations that theassessment would be conducted in accordance with terms of reference acceptableto the Bank and the results of the assessment would be furnished to the Bankby December 31, 1985. In addition a management study of MEC would be carriedout in order to improve the organization and procedures of the Ministry. Thestudy would be executed by a local firm of management consultants under thedirection of a technical working group within MEC, including a representativeof the National Institute of Administration. (A total of 186 man-months ofspecialists services would be provided for this component.) Initial terms ofreference for the study have been prepared and were reviewed at nego-tiations. The Government provided assurances at negotiations that the studywould be implemented in accordance with terms of reference satisfactory to theBank (see Annex 7 for an outline of the study), and that the results of thestudy would be available to the Bank by December 31, 1986.
Preinvestment Studies and Project Evaluation
38. The duration of the proposed project is for three years, to befollowed by further projects to improve and further develop secondary schools,develop the examination system and train senior education sector managers.Therefore the project would Provide for honoraria, consultant services andrelated expenses to assist .NEC to implement the project, prepare surveys, andconduct feasibility studies for possible follow-up investments in these andrelated education subsectors. In particular, DIKMENUM, assisted by otherparts of the MEC as necessary, would conduct tryouts, surveys and feasibilitystudies for some of those action programs which are recommended in the sector
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study on secondary education.81 The project would assist MEC in monitoringand evaluating the implementation and impact of the project, with particularattention to the delivery of project-financed quality resources, e.g., thetraining of teachers and managers, production of equipment prototypes, anddistribution of equipment. In addition, the project would finance a newtracer study to monitor secondary school graduate performance in the labormarket.
Project Kanagement
39. Implementation of the project would be managed as follows: (a) theteacher improvement and science equipment components and the pre-investmentstudies by an existing management unit in DIKMENUM; (b) the development of theinstitutional capacity to operate a national examination system by the Exami-nations Center in the BALITBANG; and (c) the management craining program bythe MTU of the Secretariat General. Coordination of management activities bythese three entities would be provided by a steering committee representingeach of them and chaired by the Director of DIKMENUM.
40. Because this project would be the first major international invest-ment project in the DIKMENUM, it would include technical assistance forproject management and procurement. This assistance would help to speedimplementation of this project and prepare an organization for preparing andmanaging further projects. It would be provided through a cost-sharing agree-ment between the Government (two-thirds) and UNDP (one-third). The Governmentshare would be reimbursable under the proposed loan. The supporting personnelprovided under the agreement would be located with the management unit inDIKMENUM but would also assist the units concerned with the implementation ofthe other project components. One hundred sixteen man-months of technicalpersonnel would be provided by the UN Office of Project Execution, as would 37man-months of fellowships in financial and supply management and evaluation.
Implementation
41. The project would be implemented over a period of about three yearsfollowing loan signing (Annex 8, Table 1 and Chart 1). The loan would financeexpenditures incurred until September 30, 1987. To allow time for theprocessing of final withdrawal applications and the settlement of accounts,the Closing Date would be September 30, 1988.
Status of Project Preparation
42. The existing secondary schools at which the 190 Teachers Centers areto be located have been identified and prototype building designs have beenprepared by MEC architects. Provincial Public Works Departments will tendercontracts for the buildings and supervise construction. Enough land is avail-able at the site of the central warehouse for the Second Textbook Project tolocate the combined science equipment warehouse and prototype development
locate the combined science equipment warehouse and prototype developmentworkshop being built under this project. A site is also in the process ofbeing acquired for the Examinations Center building. Local architecturalfirms acceptable to the Bank will be employed to design the combined scienceequipment warehouse and prototype deveLopment workshop and the ExaminationsCenter building. Lists of required equipment and furniture are under prepara-tion. Contracts have been drafted and commented upon by Bank staff for thesupply of technical assistance to project management (with the UNDP) and forthe supply of equipment and technical assistance and training for the scienceequipment prototype component with the German Agency for Technical Cooperation(GTZ). Final contract negotiations are under way and are expected to becompleted soon. The Government brought to negotiations sketch plans andequipment lists for: (a) the Teachers Centers; (b) the workshop facility forthe development of science equipment prototypes; and (c) the ExaminationsCenter, plus a List of additional positions to be established in the Examina-tions Center during the project and a schedule for their establishment.Sketch plans for the warehouse for science equipment distribution would bedeveloped following further study of the distribution system.
43. Architectural designs and construction documents for all projectinstitutions are under way as are master lists of equipment and furniture andbid documents and specifications, and identification and selection ofspecialists for necessary services and of local staff for fellowship training.
Cost Estimates and Financing Plan
44. The cost of the secondary education program under Repelita IV isestimated at US$239.7 million equivalent (for which a cost breakdown isprovided in Annex 8, Table 2). The total cost of this project is estimatedat US$129.7 million equivalent. (Cost tables for the project are alsopresented in Annex 8, Table 2 and are summarized below in Table 2.1).
45. Construction cost estimates are the product of: (a) minimumphysical requirements appropriate to the project's objectives; and (b) recentcontract awards adjusted to April 1984 ices. Costs per square meter ofgross construction gaea average US$290 P for the more complex buildings inJakarta and US$170 _ for the Teachers Centers, excluding site developmentcosts. Estimated equipment costs are the product of: (a) lists reviewedduring appraisal; and (b) current c.i.f. prices adjusted to include transpor-tation costs. Furniture costs are estimated at about 10% of constructioncosts. Equipment and materials imported under the project would be exemptfrom duties and taxes. Import duties or taxes on building materials have notbeen identified separately in project costs as such taxes are negligible.
9/ These square meter costs are for basic construction as covered byBAPPENAS budgetary provisions. Total construction costs including thecosts of such additional work as electrical and telephone connections,gas installation and special built-in benchwork, etc. are not providedfor in the BAPPENAS allowances and increase the square meter costs toabout US$470 for the major buildings and US$195 for the Teachers Centers.
- 15 -
Table 2.1: SUMMARY OF PROJECT COSTS BY COMPONENT
Rp billion US$ million % ofProject component Local Foreign Total Local Foreign Total base cost
Total Project Cost 68.1 61.6 129.7 68.1 61.6 129.7
Front-end fee on Bank loan 0.0 0.2 0.2 0.0 0.2 0.2
Total Financing Required 68.1 61.8 129.9 68.1 61.8 129.9
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Technical assistance costs for consultants include salaries, allowances andairfare. Unit costs for fellowships are estimated at about US$2,100 per man-month for overseas fellowships inclusive of international travel and US$150per man-month for local training. (See Annex 8, Table 3 for a summary of thetechnical assistance to be provided.) The foreign exchange component ofUS$61.6 million, representing about 47% of the total estimated project cost,has been calculated on the basis of the following estimated foreign exchangepercentages: civil works - 25%; local architectural services - 20Z; equipment- 85X; furniture - 30%; expatriate consultants and overseas fellowships - 85%;Local consultants and training and salaries and honoraria - 10%; and studies -50%. Physical contingencies represent 5% of the cost of technical assistanceand salaries and honoraria, and 10% of all other costs. Price contingencieswhich equal about 19Z of the baseline cost estimate were calculated inaccordance with the implementation schedule and the following expected annualincreases: local - 12% for 1984 and 10% for 1985, 1986 and 1987; foreign -3.5% for 1984, 8% for 1985 and 9% for 1986 and 1987. The proposed Bank loanof US$78.0 million would finance 602 of the total estimated project cost,including most of the foreign exchange requirements (US$61.2 million) and 24%of the local costs of the project (US$16.6 million). The UNDP would financethe remaining foreign exchange costs of the project by providing US$0.4million for management services. Retroactive financing amounting to US$5.0million is provided for under the loan for expenditures in all categoriesbeginning April 1, 1984, when implementation of the project began. Theproposed financing plan is indicated in Table 2.2 below.
Table 2.2: FINANCING PLAN
Category of expenditure Government UNDP IBRD Total IBRD share…US$ million ---- (Z)
Buildings and sitedevelopment 11.6 0.0 4.3 17.3 25
46. The incremental recurrent expenditures actually generated by theproject are estimated at about US$0.2 million equivalent per year by October1981 (in April 1984 prices). This represents about 0.01Z of the projectedtotal education sector budget - development and routine. The amount isnegligible because the project is not expanding the number of operating unitsexcept for the Teachers Centers and these are managed by the headmasters ofthe schools at which they are located, under the supervision of the ProvincialEducation Offices. The type of school science equipment to be procured willbe relatively simple; most of the maintenance of this equipment will beundertaken in the equipment repair facilities in 64 of the Teachers Centers(para. 30). The examination system being developed would be self-financingfrom the fees charged to parents or exam candidates. The operating costs ofsecondary teacher inservice training and MEC management training would endwith the completion of these two programs.
Procurement
47. Contracts for construction of: (a) the Examinations Center building,and (b) the combined science equipment warehouse and prototype developmentworkshop in Jakarta (estimated at about US$4.5 million and US$1.1 millionequivalent respectively, including contingencies) would be awarded on thebasis of international competitive bidding (ICB) in accordance with Bankguidelines. Contracts for the construction of the 190 Teachers Centers -which would be too small and geographically disbursed to attract foreigncompetition - would be awarded on the basis of local competitive bidding (LCB)procedures which are acceptable to the Bank. Equipment and furniture would begrouped to the extent practicable to form attractive bid packages. Packagesestimated to cost US$100,000 equivalent or more would be awarded on the basisof ICB. In the comparison of bids, local manufacturers would be allowed amargin of preference equal to 15Z of c.i.f. costs of competing imports, or thecustoms duty, whichever is lower. Equipment and furniture items which cannotbe grouped to form bid packages of US$100,000 equivalent or more would beawarded on the basis of LCB, under government procurement proceduresacceptable to the Bank, subject to an aggregate total value not exceedingUS$4.5 million equivalent (about 10Z of the total estimated value of equipmentand furniture, including contingencies). Miscellaneous equipment items inpackages not exceeding US$50,000 equivalent, and subject to an aggregate totalof US$1.0 million, could be purchased off-the-shelf on the basis of at leastthree price quotations. Instructional materials and books would be procuredchrough direct purchase after negotiations for discounts. Prior Bank reviewof contract award recommendations would be required for all contracts awardedon the basis of ICB, estimated to cost a total of about US$46 million forcivil works, equipment and furniture. (Annex 8, Table 4 provides a breakdownof project expenditures by procurement category).
Maintenance
48. Earlier Bank-financed education and training facilities have beenwell-maintained. The Government generally provides an adequate annual budgetfor maintenance of physical facilities. Assurances were obtained at
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negotiations that the Government wouLd allocate sufficient funds for themaintenance of the training facilities constructed under the project.
Disbursements
49. The proposed loan of US$78.0 million equivalent would be disbursedover a period of four years (Annex 8, Table 5). Disbursements would be madeon the basis of: (a) 252 of total expenditures on civil works; (b) 100X ofthe foreign costs of directly imported equipment and furniture and of theex-factory costs of locally manufactured equipment and furniture and 85% ofthe costs of locally procured equipment and furniture; (c) 100% of the totalcosts of consultants' and professional services, overseas training andstudies; and (d) 50% of the total costs of local training. To the extentpracticable, withdrawal applications would be aggregated in an amount ofUS$100,000 or more prior to submission to the Bank for reimbursement out ofthe proceeds of the loan. Disbursements for local training and constructionof the Teachers Centers (including professional services and locally procuredfurniture) would be against statements of expenditure based upon agreed unitcosts and verified by the project management entities. Supporting documentswould be retained by DIKMENUM and made available for review as requested byvisiting Bank missions. In a comparison of disbursements for the proposedproject with regional disbursement profiles, the four-year disbursement periodis about half the average for past education projects as there would berelatively little major construction under the project and implementation hasalready begun.
Auditing and Reporting
50. The three project management entities would establish and maintainseparate accounts for all project expenditures. Accounts would be maintainedin accordance with sound accounting practices. Auditing would be performed byan auditor satisfactory to the Bank and annual audit reports would be sent tothe Bank within six months of the end of the Government's fiscal year. Sixmonths after the Closing Date, the chairman of the steering committee wouldsubmit a project completion report to the Bank. Assurances were obtained fromthe Government at negotiations that it would comply with these review andreporting requirements.
Benefits and Risks
51. The main benefit of the proposed project would be to improve thequality of general secondary education particularly in three difficult subjectareas - science, mathematics and English. By the end of the project 42,000teachers would have received inservice training in these subject areas, thecapacity of local manufacturers to produce quality science equipment wouldhave been enhanced, about 8,200 public and private secondary schools wouldhave been supplied with science equipment sets and the science equipmentdistribution system would have been strengthened. In addition, the emergingnational examinations system would have been enhanced by an infusion ofresources into the MEC's Examinations Center. About 250 senior MEC officialswould have undergone degree training in professional management and planningskills with which to increase efficiency in MEC operations. The net result
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would be to improve MEC's overall capacity, in particular to meet thechallenges posed by the growth of secondary education.
52. Because this would be the first Bank-financed project in DIKMENUMand the Examinations Center, there is a risk of some delays in implementa-tion. To meet this possibility, the project would include a cost-sharingarrangement with UNDP to provide technical assistance in project managementwith a view to creating in these units of MEC an efficient project managementcapability.
III. AGREEMENTS REACHED AND RECOMMENDATION
53. At negotiations the Covernment provided assurances that:
(a) staff for the additional positions being established in theExaminations Center would be appointed in accordance with a schedulesatisfactory to the Bank (para. 36);
(b) the sites for the Examinations Center and other project facilitieswould be acquired by March 31, 1985 (para. 36);
(c) the education sector training needs assessment and the educationsector management study would be implemented according to terms ofreference agreed with the Bank and the results of the assessment andthe management study would be furnished to the Bank by December 31,1985, and December 31, 1986, respectively (para. 37);
Cd) accounts would be maintained in accordance with sound practices andannual audits would be submitted to the Bank within six months ofthe end of the Government's fiscal year (para. 50).
54. Subject to the above conditions, the proposed project would consti-tute a suitable basis for a Bank loan of US$78.0 million equivalent to theGovernment of Indonesia at the standard variable rate, for a term of 20 yearsincluding a grace period of five years.
Supebdw.24. 2986
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Co87pr.t1.. Zdacaleo D.a. am n.ful tn 11, roul"tiloo. of rto_m eduoctlon .7.t.0m 6_ mos.1-v. of relatlv e tPe of .dec.tloaal deneent h.1n'.. "rIon.C8c,tleaB. , r.an rth b-1. if t6. praesnt deta. crto_-ntonl bo_ar1eo ahod he appr.dehd with Grate conloa. Dat. oreneure, 1. the above table h1reba98 collocted largely by Book l.1le_1 fron oernnm *o6c Ch rathe da-Tdr am taIf 6s8118618 or date fron Ih-ce. 'fSort. h.w ha.. eda to *acdardiedelintions and. .6chin. tirs. to chrck the ccbor.cy of the c-t.. peourt1allem. anch datare celli inorfltcl In soral reapet. a.d the Bonk 1. working toI_rn., thee orogr_elnoly on thee -esion f it. opwratcol work. In the n_, e! tl_ea data. the followix qualiff"tlem, mheld be kept La 6dn4:
(1) Sducatioo a- defined in cth table includes *LI educAtcon and tralnlan. both forma .0 nOW-fOrRal.
(2) Prlnar adcatlo. refr,. to edcatono at the flr. le.el a1nd esry- adcAtt rfe r. co all educatlon at the secondary Ieu1i regerdle_ of ort(e.g.. General. technical. agrlcnltltl).
(3) Literacy rate- (el. 6) are often obtained frm courr cam.. In noy cow,criee thy are onlye__ 1- close And it is obetfnl that a7 elor-definition of -lterrA baa baen folleed cnalate_tly.
(I) Pnblie anpeadItore In eduction- (Colo. A and 5) refes. tO *11 e pitel r60 recrrrent ezpendrtwre. doted to bedcatio by pubic nd eMA ne-blic
(5) arell_ne rcatio- (Ceol. 7. 12 and 14) refer to sdcool ye.r and are ta percentage of elibla children srdlled frl_-tIne in tlh appropriate adool.peblc and pri.ate by lerel- Ihy are oft.. abiecS to a ide nroin of error In the dn_ loping countrlen oew to narlatia. In the acceracy of betsdat- (S_.. o -ap ic popleecto and envoll_nct). Earollaent fIgrna freqeamly are higher than che _ber of tcaude- actually la achool. 0O_r-aedatICIn show. Inclalon 1is Iadiceted 67 footnotee A1m cAn inflate cte ratio.
INDONESIASECONDARY EDUCATION AND MANAGEMENT TRAINING PROJECT
Educatlon Shucture, 1984Showing Wodd Bank Group Flnonclal Asslstonce to Dote
1 2 3 A 5 6 7 S 910 11 Q1 13 14 IS 16 11 Is 19 20 21I I t I Il -I t 1 1 1 1 I t I I l- - I 1- 9 q o 11 12 13 1 is 16 17 to 19 20 21 22 23 24 2S 6 27
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rMn* 51 (51o) I 52 (Poea S3 (Fh D)
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Wodd Bank-26348 w I
-25- ANNEX 3
Page 1
INDONESIA
SECONDARY EDUCATION AND MANAGEMENT TRAINING PROJECT
Secondary Education Action Programs
1. At the conclusion of the World Bank staff subsector study onsecondary education (Report No. 4954-IND, March 15, 1984) a set of actionprograms to improve quality and equity and to mobilize additional resourceswas proposed in summary form, based on the preceding analysis. The financialimplications of these programs to the Government, including and excluding costrecovery measures, were then weighed against projected Government expendituresfor secondary education without the programs.
Three Specific Action Programs
2. Quality Action Program
(a) Expand the in-service, on-service science and mathematics teachertraining program to include English language, and give particularemphasis to rural areas. Build rural teachers centers to strengthenthe program.
Cb) Provide SMPs and SMAs which have at least two parallel streams withscience laboratories and libraries and related equipment, withparticular emphasis on private schools.
Cc) Develop a system of national school leaving examinations which rankscandidates for selection to further education, monitors schoolquality, and provides schools and supervisors with feedback of"incentive" and "guidance" information. Create a National Examina-tions Center to lead this institution building process, bystrengthening the Ministry of Education Center for Examinations.
Arrange externaL examinations at the end of each cycle as follows:
Ci) SD: set by the province (kanwil); conducted, marked, analyzedand reported by the district (kabupaten) education authorities.
(ii) SMP: set centrally by the Center in close cooperation with theDirectorate of General Secondary Education; conducted, marked,analyzed, and reported by the provinces.
(iii) SMA: set, marked, analyzed and reported centrally by theNational Examinations Center.
(d) Reduce SMP/SMA teacher double shifting by increasing teacher supplyfor both private and public schools.
-26 - ANNEX 3
Page 2
Ce) Conduct a study to determine optimal wage scale for public schoolteachers, using comparisons with private sector with objective ofreducing incentive to "multi-job," and eliminating "piecework" asbasis for salary supplementation.
3. Equity Action Program
(a) Allocate available capital funds for SMP and SMA expansion initiallyto those provinces which are both most severely underrepresented inenrollment and most underprovided with classroom facilities relativeto demand (enrollment), up to the point where they catch up to thenext-most underrepresented provinces; follow the same "bump-up" pro-cedure with the two most underrepresented provinces jointly; and soforth until the budget allocation is fully committed. Within eachof these provinces apply the bump-up principle to kabupatens; andwith each kabupaten chosen accordingly, apply the same principle tothe subdistricts (kecematans), etc. The use of this allocationprocedure could by 1989/90 reduce the existing Gini coefficients forSMP and SHA dramatically from 0.146 and 0.215 to 0.009 and 0.023respectively.
(b) Extend opportunities for qualified candidates to enter high qualitySMPs and SMAs by enlarging the geographic area in which common exam-inations are conducted.
(c) Enlarge the opportunities for qualified candidates to enter PP1universities by staging the PP1 examination at many locations, notjust at the PP1 universities themselves.
(d) Extend the coverage of the school map over more rural areas, byadopting the minimum economic size school as the norm for schoolsize. Retain double shift use of facilities in urban areas in orderto minimize new urban school construction until the rural school maphas been filled in, thereby offsetting the extra cost.
4. Resource Mobilization Program
(a) Maintain level of SPP fee income in real terms by adjusting feeschedule annually for inflation.
(b) Allow schools to retain portion of SPP income to use for ownbudgeted purposes, as incentive to schools to raise their own fees.
(c) Establish means-tested nil-fee system for very low income familystudents who qualify for admission to public SMP or SMA so that theyare exempted from the SPP fees.
(d) Channel maximum portion of capital budget for general secondaryeducation through grants-in-aid to "private," i.e., communityschools in targeted kabupaten and kecematan. The communities wouldbe required to raise 15% of capital costs which the Government wouldItmatch" with the remaining 85%.
- 27 - ANNEX 3
Page 3
(e) Reallocate excess SPG facilities to use as SMAs as demand for newprimary teachers falls rapidly early in Repelita IV, and remains lowthrough Repelita V.
(f) Prepare physical facilities inventory province by province as basisfor providing grants for adding new facilities at existing,incomplete public and private SMPs and SMAs.
5. Underlying these action programs is an assumption that secondarygeneraL education will continue to grow. It will be necessary to accommodatethe enrollment growth in Repelita IV by constructing about 54,000 SHP class-rooms plus related laboratories, libraries, staffrooms, etc., and 47,000 SMAclassrooms plus related laboratories, Libraries, staffrooms, etc. On anaverage annual basis, this means constructing about 20,000 new classrooms plusabout 5,000 related specialized rooms or the equivalent of about 2,000 newschools per year. Continued extensive use of double shifting would reducethese quantities. Based on the most recent trends, enrollments in public andprivate SMAs will expand from 1.3 million students, or 14Z of 16-18 year olds,in 1981/82 to between 3.0 and 3.6 million or 32Z-38Z at the end of RepelitaIV, 1988/89. Based on most recent trends, total public and private SMPenrollments will expand from 3.7 million students, or 37% of the 13-15 agegroup in 1981/82, to between 7.3 and 7.6 million students or 58Z-60Z of theage group at the end of Repelita IV in 1988/89.
Budgetary Implications of the Action Program
6. How much would the implementation of the proposed action programcost the Government? The projected costs of the various quality-improving andequity-enhancing programs identified in paras. 2 to 4 are summarized inTable 1. The table shows these costs for 1984/85 and 1993/94, the first andtenth years respectively of Repelita IV and V. In addition, the Government'sannual education sector budget, by levels of education, has been projectedforward through 1993/94, the last year of Repelita V. This projection isbased on a straight-line extrapolation of the Government's own enrollmentforecasts for Repelita IV. Let us first turn to the costs of the actionprogram before looking at their impact on the projected government budget asthe base.
7. The components of che secondary education action program which bringthe heaviest additional recurrent budget outlays are an increased level ofprovision of classroom materials, a 5Z p.a. real increase in teacherssalaries, and the replacement of science laboratory and library equipmentevery seven years. The added recurrent costs of these and other actions areslightly offset by an effort to recover some costs by an increase in schoolSPP fees, which in turn is partly offset by a nil-fee scheme for students frompoor families. On the other hand, the capital expenditure side of the actionprogram will actually help introduce some savings to the government budgetrather than add to the budgetary burden. This budget savings is due in partto slower enrollment expansion forecast in the outer years. But in addition
- 28 -
ANNEX 3Page 4
Table 1: BREAKDOWN OF SECONDARY EDUCATION ACTION PROGRAMCOSTS IN 1984/85 AND 1993/94
(Rps billion)
I. Recurrent Budget Expenditure 1984/85 1993/94
Increase teacher salaries 29 94
Reduce double shifting 0 14
Equipment replenishment 35 74(Laboratory and library)
Private school facilities 51 43(Laboratories; libraries)
Private school equipment 38 36
Examination development 1 0
Subtotal 99 81
Cost recovery:Converting excess SPGs to SMAs - 1 - 4Matching funds for coinmunity schools -94 -102
Subtotal -95 -106
Net cost (savings) 3 /a - 25
/a Columns do not sum exactly due to rounding.
- 29 - ANNEX 3
Page 5
the program would (a) introduce local community fund-raising to partiallymatch future government school building grants; and (b) convert future excessSPGs (primary teacher training high schools) to SMAs to reduce new schoolbuilding and increase capacity utilization. The budget savings from theseactions would more than offset the additional expenditure brought on by theother proposed actions.
8. The added cost of this action program to improve secondary schoolquality and equity appears manageable. The Government's combined capital andrecurrent budget for secondary education is estimated at Rp 825 billion in1983/84. It would grow after ten years to: Rp 1,490 billion without theaction program (6.1Z p.a.), or to Rp 1,751 billion with the entire actionprogram (7.8% p.a.). By 1993/94 the additional cost of the full actionprogram would be Rp 261 billion, requiring total secondary educationexpenditures of Rp 1,751 billion; the latter would be 18% more than the basebudget of Rp 1,490 billion. The cost recovery features of the action program,shown in Table 1, explain why the action program adds only modestly to theprojected growth of secondary education costs. However, if these costrecovery features were to be deleted from the action program, its cost on thegovernment budget would rise from Rp 261 to 397 billion which would represent27% instead of 18% of the base budget. By the same token, the ten-year annualgrowth rate of the budget plus the partial action program would be not 7.8%,but 8.6% p.a., which is a 50% increase over the 6.1% p.a. underlying growthrate in the base budget.
- 30 -
ANNEX 4
INDONESIA
SECONDARY EDUCATION AND MANAGEMENT TRAINING PROJECT
Projected Growth in General Secondary Enrollment, 1984/85-1994/95
SECONDARY EDUCATION AND MANAGEMENT TRAINING PROJECT
Management Training Program
1. Aims
The short-term aim of this component is to improve the overallmanagement skills of the Ministry of Education and Culture (MEC). TheLong-term objective is to build up the institutional capacity of the Centerfor Staff Training (PUSDIKLAT) and the Teacher Training Colleges (IKIPs) tocarry out this training. To do this an overseas fellowship program for seniorand mid-level staff is proposed which will provide:
1.1 Training for Master's and Doctoral candidates.
1.2 Short course training of 3-6 months duration.
1.3 Predeparture language training for both categories of candidates.
1.4 Orientation visits to identify recipient institutions outsideIndonesia.
1.5 Monitoring and evaluation visits by the project unit staff to therecipient countries.
1.6 A management study of the key administrative areas of the MEC toexamine existing procedures, their weaknesses and to recommendimprovements.
1.7 A training needs assessment that will identify the positions and thestaff that should be assisted, the kind and duration of theirtraining and their career placement on return from training.
A total of 11 PhDs, 49 MAs and 198 short-term training courses areenvisaged over the three-year life of the Project (see Annex 8, Table 3,Technical Assistance and Fellowships).
2. Key Units to be Assisted
Key units to be assisted will include the eight bureaus of theSecretary-General's office, the Inspectorate-General, the Secretary's officesof the four Directorate-Generals (Higher Education; Primary and SecondaryEducation; Non-formal Education, Youth and Sports; and Culture); PUSDIKLAT,selected provincial offices (Kanwils) and IKIPs.
- 36 - ANNEX 7Page 2
3. Training
Training under this project will be divided into long- andshort-term:
3.1 Long-Term Training
Long-term training will be provided for 11 PhDs and 49 MAs. Theareas of study will include general planning, educational planning,personnel management, financial management, management informationsystems, organizational development, computer systems, budgetmanagement and accounting. Requirements should include:
(a) PhD.
Educational Background. Either an MA from a recognizedoverseas university or an MA degree (sarjana) from anIndonesian university with already completed overseas training.
English. TOEFL test of 550 would be the minimal languagerequirement if training is to be carried out in an English-speaking country (or a similar level of language ability inother countries).
_e. Normally a maximum of 40 years of age.
Duration of training. Approximately 4 years.
(b) MA
Educational Background. MA degree from a local university. Incertain areas, a bachelor's degree may be acceptable.
English. TOEFL score of 550.
Age. Up to 45.
Duration of Training. Two years.
3.2 Short-Term Training
Length. One to six months in specialist courses that are designedto develop specific/special skills of the trainees.
FieLds of Study. These will be related to the specific types oftraining required in the different key units. They would include,but would not be limited to, management, planning, educationalplanning, financial management, audit, procurement, personnelmanagement, project management, logistics, equipment and materials,administration and information systems.
- 37 ANNEX 7Page 3
Requirements. The candidate shouLd have a good knowledge of Englishor other relevant foreign language with a bachelor's or MA degreeand be below 45 years of age (in some cases where special skillasuch as procurement, accounting or audit are required and the candi-date already has appropriate work experience and a good knowledge ofthe language of study, the degree and age requirements may bewaived).
4. Project Organization
To provide support for this project two key units should be created:
4.1. Overseas Fellowship Committee
This committee will help in the identification and selection ofcandidates and monitor their career placement on their return fromtraining. Committee members will, include representatives from theSecretary-General's office, the Inspectorate-General, theSecretary's offices of the four Directorate-Generals, andPUSDIKLAT. Staff will work on a part-time basis. The committeewill meet regularly to review the activities of the ManagementTraining Unit (see below). One of the initial tasks of thiscommittee will be to visit countries most likely to provideappropriate training to help identify suitable institutions andcourses. The committee will report to the Secretary-General.
4.2. Management Training Unit
This will be the key unit for administering and coordinating theproject. It will report to the Secretary-General on a day-to-daybasis and work with the various units of the MEC that are partici-pating in the project. It will have eight regular staff members(Diagram 1) including a director, a training officer and a financeofficer, who will be recruited from existing or retired MEC staff.They should have backgrounds in administration, management andtraining. The work of the unit will cover the following areas:
(a) Identification of candidates for long- and short-term training.
(b) Prov-ision (either in the NEC or through outside contracts) ofintensive/semi-intensive language training where required.
(c) Placement of both short- and long-term candidates inappropriate courses in selected countries.
(d) Visits to overseas countries to evaluate training programs, toset up institutional arrangements for administration oftrainees and to identify appropriate courses.
(e) Visits throughout the life of the project to monitor theprogress of the students, to evaluate the training courses andthe work of the subcontracts for administering the training in
- 38 - ANNEX 7Page 4
the selected countries.
(f) Placement of the returned trainees (working with the Bureau ofPersonnel) to see that their training is fully utilized.
(g) Provision of support to the management study to be carried outby the MEC (see the Terms of Reference for the managementstudy, below.
(h) Carrying out a training needs assessment of the unitsidentified in the MEC for management and planning trainingsupport at the beginning of the project on which trainingchoices will be based. International and local consultantswill be used where required.
(i) Responsibility for the financial accounting of the project.This will include reports to the Secretary-General and theWorld Bank.
(j) Liaison with each unit in the MEC selected for training.
The placement of the Management Training Unit in the MEC is shown inAnnex 2, Chazrt 2.
5. Overseas Management
The identification of suitable overseas courses and the placementand administration of the trainees are of key importance in the successfulimplementation of this project. Arrangements would be as follows (Diagram 2):
5.1 Field Officers. They should be identified in each country selectedfor training and may be from the Indonesian Embassy staff or bespecifically contracted for. They would have overall responsibilityin each country for the training activities and trainees in thatcountry and would report to the Management Training Unit.
5.2 Subcontractors. Contractual arrangements either with an academicinstitution, a government agency or a private company would benegotiated to help in the placement and administration oftrainees. These would include retainer contracts.
6. Technical Assistance
Technical assistance would be provided to support the ManagementTraining Unit and key bureaus/units in the MEC to satisfy the need forimmediate expertise and for building up the institutional capability of theMEC units to carry out their tasks later on. This assistance would include:
- 39 ANNEX 7Page 5
6.1 A Training Specialist to work with the Management Training Unit andthe PUSDIKLAT.
6.2 A Personnel Management Specialist to work with the Bureau ofPersonnel, Secretary-General's office.
6.3 A Planning Systems Specialist to work with the Planning Bureau inthe Secretary-General's office.
6.4 Short-Term Consultants (international and local) would be providedwhere required during the life of the project. Additionalconsultancy services would be provided to carry out the managementstudy.
Management Study-Ministry of Education and Culture
Terms of Reference
1.1 The management study wiLl examine the existing management systems inche MEC and recommend improvements. The primary focus of the study will be onthe administrative components of the MEC which will include the Secretary-General's office (Bureaus of Personnel, Planning, Finance Organization, LegalAffairs, Foreign Cooperation, Procurement and General Services), theInspector-General's office, the administration section (Secretary's office)only of each of the four Director-Generals (Primary and Secondary Education,Higher Education, Culture, and Nonformal Education, Youth and Sports) and theadministration section of a selected few of the Ministry's provincialoffices. The study will cover all aspects of management including but notlimited to, planning systems, operational systems, personnel systems,financial systems, procurement, auditing and control systems, and reportingsystems.
2.1 The study will focus specifically on analyzing existing systems andmaking recommendations for improvements in:
(a) Existing planning systems. All units involved in short- and medium-term planning both for the routine and development budgets should beexamined. Liaison between these units and the effectiveness of thecurrent system should be assessed as a basis for possible newsystems and information flows.
(b) Existing personnel systems. All units involved (particularly thePersonnel Bureau of the Secretary-General's office) in theimplementation of personnel policies. In particular staffdevelopment, recruitment, promotion and remuneration systems shouldbe assessed.
(c) Budgeting systems. All units involved in the financial operationsof the MEC including budget preparation, implementation, andreporting. This will cover both the routine and the developmentbudgets.
-40- ANNEX 7
Page 6
(d) Control. All units involved in monitoring, audit and evaluation ofthe MEC's activities (whether financial or otherwise), specificallythe Inspectorate-General's office should be examined to suggest waysof improving the present system.
(e) Organization. The units (particularly the Bureau of Organization,Secretary-General's office) responsible for the organizationalstructure of the MEC. The mechanism utilized for recommending andimplementing structural changes should be examined. The formulationand use of Presidential, Ministerial and other decrees and lettersshould also be assessed.
(f) Information flows. Information flows generally throughout the MECshould be examined including all reporting procedures whetherfinancial or otherwise. The viability of using a centralizedinformation flow system (or individual subsystems in selected unitssuch as Personnel, Finance and Planning) including computerizationshould be examined.
3.1 Work Plan. The team will initially draw up a work plan to cover theseterms of reference at the start of the study.
4.1 eports. A progress report should be submitted to theMinisterTSecretary-General after six months. A final report should besubmitted on the completion of the study in the twelfth month.
-41 - ANNEX 7Diagram I
Management Training Program Organization
|SEOZETAW-YEi43l
MANAGBINTTRAINING UNIT
Assistant Director
| TrTining Officer lI Asstant Trakilng l
I FdOneOfce lOFRice Office
Assistcrlt Rnarice
LE itor I
'OCesos fegonwsDp commrrtee will have representatives ofm the- Secreto v-GeneWs Office- InspectaorafGenera- Directomate-Genefol (Secretoryfs Offices)- Center for Education & Training
World Bank-26391
-42 - ANNE_ 7Diagram 2
Management Training ProgramOrganization of Ovse as Management
Total 45.6 17.6 22.0 44.5 129.7(34.7) N7oe p h (1e6e.f9) (19.2) T(i7.8l)
Note: Figures in parentheses refer to loan allocations.
ANNEX 8- 49 - Table 5
INDONESIA
SECONDARY EDUCATION AND MANAGEMENT TRAINING PROJECT
Estimated Schedule of Disbursements /a
RegionalIBRD Disbursements education
fiscal year Amount per Cumulative disbursementand semester semester Amount % of total /a profile (Z) /b
(USs million) -
FY852 2.4/c 2.4 3 1
FY861 4.6 7.0 9 32 7.0 14.0 18 6
FY871 9.4 23.4 30 102 13.1 36.5 47 16
FY881 16.9 53.4 68 232 16.5 69.9 90 31
FY891 8.1 78.0 100 40
/a Estimated profile represents an above-average rate of disbursement becausethe project (a) would be only an initial three-year phase of a 5-1/2 yearprogram; and (b) would be prepared more fully before lending than theaverage position represented by the regional profile.
/b The regional profile is based on historical data for 43 education projectsand represents the initial 4-1/2 years of the average 9-1/2 year disburse-ment period.
/c Including the front-end fee of about US$0.2 million.
-50 - ANEC 8Chart Page 1
INDONESIASECONDARY EDUCAIMON AND MANAGEMENT TRAINING PROJECT
Implementation Schedule
Cduodw?g1 1964 11965 aqu * 1q7 g ss 1 ew 1w 11DinDwC.A-wI) Ri R 6 W 97 U R
SECONDARY EDUCATION AND MANAGEMENT TRAINING PROJECT
SeLected Documents and Data Available in the Project File
A. Selected Reports and Studies Related to the Sector
A.1 C.S. Mangindaan, R.K. Sembiring, I. Livingstone, "National Assessment ofthe Quality of Indonesian Education: Survey of Achievement in Grade9", Ministry of Education and Culture, Jakarta, 1978.
A.2 Suprapto, R.K. Sembiring, I. Livingstone, "National Assessment of theQuality of Indonesian Education: Survey of Achievement in Grade 12",Ministry of Education and Culture, Jakarta, 1981.
A.3 John Smyth, "Central Government Education Expenditure, 1980/81-1990/91".
A.4 Oey Astra Meesook, "Financing and Equity in the Social Sectors inIndonesia", 1984.
A.5 Ward Heneveld, "The Development and Routine Budgets in Indonesia'sDepartment of Education and Culture. Do They Complement Each Other",1984.
A.6 Extracts from Rancangan Repelita IV Pendidikan dan Generasi MudaDepartemen Pendidikan dan Kebudayaan (Five-Year Plan for Ministry ofEducation and Culture).
B. Selected Reports and Studies Related to the Project
B.1 Loan Request for Education Development Project, Secondary GeneralEducation, MEC, Jakarta, June/July 1983.
B.2 "Secondary Education in Indonesia: Issues and Programs for Action",World Bank Report No. 4954-IND, July 26, 1984.
B.3 David Clark, "Labor Market Outcomes for New Senior Secondary SchoolGraduates in Indonesia", World Bank Staff Working Paper No. 615, 1983.
B.4 H.C.A. Somerset, "Secondary Education, Selection Examinations andUniversity Recruitment in Indonesia: Some Key Issues", 1984.
B.5 H.C.A. Somerset, "The Potential Contribution of Examinations to SchoolQuality Improvement", 1984.
B.6 H.C.A. Somerset, "Patterns of University Recruitment: RegionalVariations in the Flow of Secondary School Leavers to the PP1Universities", 1984.
- 53 - ANNEX 9Page 2
B.7 S. Heyneman, "Indonesian Secondary Schools: Issues of Quality andFinance", 1984.
B.8 W.T.S. Gould, "Indonesia: Some Spatial Issues in Secondary Education",1984.
B.9 Geert Criel, "Distribution of Secondary School Enrollments inIndonesia", 1984.
B.10 Ministry of Education and Culture, "Draft Report of the PreinvestmentStudy on the Improvement of General Secondary Education", 1982.
B.11 Anita Nazareth, "Projections of Enrollment and Resource Requirements forPrimary and Secondary Education in Indonesia", 1984.
B.12 P. Adey, "Procurement, Distribution and Maintenance of Science Apparatusfor Secondary General Schools", December 1983.
B.13 B.M. Makau, "Examination Development in Indonesian School Education",December 1983.
B.14 C. MacAndrews, "Management Training Project for Senior LevelStaff-Ministry of Education and Culture", Jakarta, April 1984.
C. Working Papers
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