2008年-世界发展银行全球_Teacher_Employment_and_Deployment_in_Indonesia___Opportunities_for_Equity_Efficiency_and_Quality_Improvement_83页_900kb

Summary of Teacher Employment and Deployment in Indonesia

Core Content

This report focuses on the challenges and opportunities related to the employment and deployment of teachers in Indonesia, with the goal of improving equity, efficiency, and quality in the education system. It was prepared by a World Bank team in collaboration with the Indonesian Ministry of National Education (MoNE), particularly the Directorate General for Quality Improvement of Teacher and Education Personnel (PMPTK/QITEP).

The study is based on a field survey of 385 schools (276 primary, 70 junior secondary, 39 senior secondary) across 12 districts, and a two-day workshop involving district representatives. The findings highlight several critical issues in teacher management and propose policy reforms to address them.

Main Issues Identified

1. Uneven Distribution of Teachers

   • 68% of urban and 52% of rural primary schools have an excess of teachers, while 66% of remote schools have a deficit.
   • 81% of junior secondary schools have an excess, and 13% have a deficit.
   • There are mismatches between subject needs and teacher expertise, particularly in English, sport, and religion.

2. Inequities for Remote Schools

   • 93% of remote schools report a deficit in staff.
   • Despite civil service regulations requiring teachers to serve where posted, the policy is not consistently implemented.
   • Low remuneration and poor working conditions in remote areas lead to resistance to postings and excessive workloads for some teachers.

3. Low Workloads

   • Almost half of primary teachers work less than 18 hours per week.
   • 44% of junior secondary teachers also work below the minimum hours.
   • Specialist teachers in small schools may not have enough classes to fulfill their teaching load.
   • Single-subject teaching in junior secondary schools limits staff flexibility and increases staffing requirements.

4. Excessive Staffing Levels

   • National policy mandates STRs of 40:1 for primary and 28:1 for junior secondary schools, but actual STRs are 19:1 and 15:6, respectively.
   • These STRs are lower than international standards, indicating overstaffing.
   • The low workload and low STRs suggest that current staffing levels are excessive.

5. Low Remuneration

   • Teacher salaries are below those of other civil servants with similar qualifications.
   • Only 36% of primary and 52% of junior secondary teachers receive district allowances.
   • 14% of primary and 45% of junior secondary teachers receive school-level incentives.
   • Low remuneration affects teacher motivation, attendance, and performance, and leads to moonlighting.

6. Teacher Quality Concerns

   • Teacher competency levels are a major concern, with low performance on subject-specific tests.
   • The new Teacher Law aims to improve qualification standards and certification, linking them to remuneration.

Key Policy Recommendations

• Introduce system-wide equity in resource allocation through student-per-teacher staffing entitlements.
• Implement school-specific deployment policies to improve equity, access, and quality.
• Reform teacher recruitment, appointment, salaries, and allowances.
• Establish clear school classifications.
• Improve posting, transfer, and attendance mechanisms.
• Enhance teacher progression and promotion.
• Address staffing levels and class sizes.
• Standardize teaching workloads.
• Focus on teaching subjects and teacher qualifications.
• Provide incentives for remote areas.
• Consider school mergers to optimize resources.

Feasibility Considerations

• Current policies need to be reviewed and updated.
• Governance structures must support the implementation of new reforms.
• Organizational capacity and system readiness are important for policy effectiveness.
• Remote school services require special attention due to inadequate facilities and housing.
• Teacher demand and supply must be aligned to avoid overstaffing and deficits.
• Corruption risks must be managed during policy implementation.
• Required resources are crucial for successful reforms.

Resource Implications

• The new Teacher Law is expected to improve teacher qualifications and remuneration.
• The study estimates that current staffing levels are 21% above optimal, and that efficiency improvements could lead to annual savings of approximately 5.8 trillion Rupiah in salary costs.
• Cost-effectiveness is a key consideration in reforming student-teacher ratios and workload standards.

Conclusion

The report emphasizes that reforming teacher employment and deployment systems is essential for achieving equity, efficiency, and quality in Indonesia's education system. It identifies 42 policy recommendations to address the six major issues, and proposes a pilot study in selected districts to test these reforms. The implementation of these policies could lead to significant financial savings and improved educational outcomes for students.

Key Variables and Correlations

• Location is a key variable affecting teacher distribution, workload, and supply.
• Correlations between STRs, teacher types, and education levels are summarized in the matrix of correlations (Annex D).
• Student-teacher ratios vary significantly between urban, rural, and remote schools (Figures 1–6).
• Teacher workload and STRs are inversely related, with lower STRs correlating with higher workloads (Figures 16–19).

Data and Context

• The Indonesian education system includes public and private schools.
• There are 167,000 primary schools, 34,000 junior secondary schools, and 17,000 senior secondary schools.
• Approximately 29 million primary students, 9.5 million junior secondary students, and 5.9 million senior secondary students.
• Teacher demographics show a predominance of female teachers in primary schools (55%) and male teachers in secondary schools (54%).
• Qualifications are generally low, with 55% of primary teachers holding D2 (two-year diploma) and only 17% holding S1 (bachelor’s degree).
• Civil service and teacher management are critical to the reform process.

Summary of Findings

• The current teacher deployment system is inequitable, with urban schools overstaffed and remote schools understaffed.
• Low remuneration and workload issues affect teacher motivation and performance.
• Teacher qualifications and subject expertise are not aligned with school needs.
• STRs are below international standards, indicating overstaffing.
• Policy reforms are needed to improve efficiency, equity, and quality in teacher management.

This report provides a comprehensive overview of the current state of teacher employment and deployment in Indonesia and outlines a pathway for reform that balances equity, efficiency, and quality in the education system.