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ASIAN DEVELOPMENT BANK PCR:INO 27005

PROJECT COMPLETION REPORT

ON THE

PRIVATE JUNIOR SECONDARY EDUCATION PROJECT (Loan 1359-INO)

IN

INDONESIA

July 2004

CURRENCY EQUIVALENTS Currency Unit – rupiah (Rp)

At Appraisal At Project Completion (1 May 1996) (30 April 2002)

Rp1.00 = $0.000427 $0.0001125 $1.00 = Rp2,342 Rp8,889

ABBREVIATIONS

ADB – Asian Development Bank BME – benefit monitoring and evaluation BMPS – Badan Musyawarah Perguruan Swasta

(Council of private school foundations) CPIU – central project implementation unit DAC – district advisory committee DGPSE – Directorate of Primary and Secondary Education DJSE – Directorate of Junior Secondary Education DPS – Directorate of Private Schools EA – executing agency EMIS – education management information system ESC – education services contracting JSE – junior secondary education LEC – local education center MOEC – Ministry of Education and Culture MONE – Ministry of National Education MORA – Ministry of Religious Affairs NEM – Nilai Ebtanas Murni (national JSE examination scores) PAC – provincial advisory committee PCR – project completion report PJSE – private junior secondary education PPIU – provincial project implementation unit PSC – Project Steering Committee REPELITA – national five-year development plan SY – school year UBE – universal basic education

NOTES

(i) The fiscal year (FY) of the Government closed on 31 March until year 2000. Thereafter, the financial year was brought in line with the calendar year, i.e., closure on 31 December.

(ii) The school year (SY) is from 1 July to 30 June of the following year. (iii) In this report, “$” refers to US dollars.

CONTENTS

Page

BASIC DATA ii

MAP vii I. PROJECT DESCRIPTION 1 II. EVALUATION OF DESIGN AND IMPLEMENTATION 1

A. Relevance of Design and Formulation 1 B. Project Outputs 3 C. Project Costs 5 D. Disbursements 5 E. Project Schedule 5 F. Implementation Arrangements 5 G. Conditions and Covenants 6 H. Consultant Recruitment and Procurement 6 I Performance of Consultants, Contractor, Suppliers 6 J. Performance of the Borrower and the Executing Agency 7 K. Performance of ADB 7

III. EVALUATION OF PERFORMANCE 7

A. Relevance 7 B. Efficacy in Achievement of Purpose 8 C. Efficiency in Achievement of Outputs and Purpose 9 D. Preliminary Assessment of Sustainability 10 E. Environmental, Sociocultural, and Other Impacts 12

IV. OVERALL ASSESSMENT AND RECOMMENDATIONS 13

A. Overall Assessment 13 B. Lessons Learned 13 C. Recommendations 14

APPENDIXES 1. Performance Summary Against the Logical Framework 17 2. Logical Framework for Project’s Extension Period, 2000–2001 27 3. Achievement of Project Targets or Outputs 33 4. Cost Breakdown by Project Component 37 5. Actual Implementation Schedule 38 6. Status of Compliance with Loan Covenants 40 7. Project Impact Upon Examination Performance and Enrollments 50 8. Project Performance Rating Assessment 51 9. National Enrollment Statistics Indicating Flows Into and Out of Junior Secondary

Education 52

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BASIC DATA A. Loan Identification 1. Country 2. Loan Number

3. Project Title 4. Borrower

5. Executing Agency 6. Amount of Loan 7. PCR Number

Indonesia 1359 Private Junior Secondary Education Government of Indonesia Ministry of National Education $49.0 million INO 813

B. Loan Data 1. Appraisal – Date Started – Date Completed 2. Loan Negotiations – Date Started – Date Completed 3. Date of Board Approval 4. Date of Loan Agreement 5. Date of Loan Effectiveness – In Loan Agreement – Actual – Number of Extensions 6. Closing Date – In Loan Agreement – Actual – Number of Extensions 7. Terms of Loan – Interest Rate – Maturity

– Grace Period

27 Oct 1994 17 Nov 1994 9 Jun 1995 13 Jun 1995 18 Jul 1995 22 Aug 1995 29 Sep 1995 3 Oct 1995 0 30 Apr 2001 30 Aug 2002 One Variable 25 years 5 years

8. Disbursements a. Dates

Initial Disbursement 6 Mar 1996

Final Disbursement 30 Aug 2002

Time Interval 6.42 years

Effective Date 3 Oct 1996

Original Closing Date 30 Apr 2001

Time Interval 5.5 years

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b. Amount ($) Category or

Subloan Original

Allocation Last

Revised Amount

Canceled Net

Amount Amount

Disbursed Undisbursed

Balance Allocation Available Foreign Expenditure 01 Civil Works 1,235,000 1,523,500 557,067 1,523,500 677,933 845,567

02 LEC Furniture 228,000 150,927 91,238 150,927 136,762 14,165

03 LEC Equipment 1,631,000 781,612 843,359 781,612 787,641 (6,029)

04 Instructional Materials 6,877,000 5,533,815 1,648,661 5,533,815 5,228,339 305,476

05 Staff Development (Overseas) 1,805,000 2,063,450 (251,701) 2,063,450 2,056,701 6,749

06 Consulting Services 2,699,000 6,017,773 (2,537,034) 6,017,773 5,236,034 781,739

07A Assistance Scheme for Facilities Improvement (ASFI) 1,376,000 1,763,683 (388,304) 1,763,683 1,764,259 (576)

07B Special Programs. ESC Programs for Depressed Rural Areas 0 176,013 (176,013) 176,013 176,013 0

08 Interest and Commitment Charge 7,519,000 7,519,000 1,356,590 7,519,000 6,162,410 1,356,590

09 Project Implementation - Capital Costs 286,000 174,662 114,392 174,662 171,608 3,054

10 Prior Technical Assistance Financing 270,000 173,887 96,113 173,887 173,887 0

11 Unallocated 1,697,000 0 1,697,000 0 0 0

Local Expenditure

01 Equipment 222,000 0 222,000 0 0 0

02 Instructional Materials 3,232,000 0 3,232,000 0 0 0

03 Staff Development 0

- Overseas Training 171,000 0 171,000 0 0 0

04 Staff Development 0

- Local Training 13,018,000 10,840,164 2,360,554 10,840,164 10,657,446 182,718

05 Consulting Services 2,764,000 0 2,764,000 0 0 0 06 Studies 491,000 377,754 113,809 377,754 377,191 563 07 Unallocated 3,479,000 0 3,479,000 0 0 0

Total 49,000,000 37,096,240 15,393,731 37,096,240 33,606,224 3,490,016

Local Cost (Financed) - Amount ($ million) 11.03 - Percent of Local Costs 34 - Percent of Total Cost 20

C. Project Data 1. Project Cost ($ million)

Cost Appraisal Estimate Actual Foreign Exchange Cost 25.62 22.57 Local Currency Cost 57.48 32.60

Total 83.10 55.17 Source: Asian Development Bank estimates.

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2. Financing Plan ($ million) Cost Appraisal Estimate Actual Implementation Costs Borrower-Financed 29.19 19.49 ADB-Financed 41.48 27.44 Private Sector-Financed 4.91 2.08 Subtotal 75.58 49.01 IDC Costs Borrower-Financed 0 0 ADB-Financed 7.52 6.16 Subtotal 7.52 6.16 ADB = Asian Development Bank, IDC = interest during construction. Source: Asian Development Bank estimates. 3. Cost Breakdown by Project Components ($ million)

Component Appraisal Estimate Actual A. Teacher Secondment 6.75 0.58 B. Teacher and Staff Development 1. In-country 15.29 16.83 2. Overseas 2.20 2.06 Subtotal 17.49 18.88 C. Instructional Materials 11.40 5.23 D. Consulting Services

1. International 2.98 5.24 2. Domestic 3.25 0.49 Subtotal 6.23 5.72

E. Studies 0.58 2.91 F. Civil Works 5.34 2.22 G. Furniture and Equipment 1. Furniture 0.80 0.16 2. Equipment 2.06 0.79 Subtotal 2.86 0.95 H. Special Programs

1. Assistance Scheme for Facilities

Improvement 10.19 4.33 2. Education Services Contracting 7.40 Depressed Rural Areas 2.37 0.18 Low-Income Urban Areas 5.05 0.00 Subtotal 17.60 11.91 I. Project Implementation 1. CPIU and PPIUs Capital Costs 0.46 0.44 Recurrent Costs 2.24 0.00 2. O&M of Project Facilities 1.84 0.00 Subtotal 4.54 0.44

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Component Appraisal Estimate Actual J. Taxes and Duties 2.54 0.00 K. Interest During Construction 7.52 6.16 L. TA Cost Recovery 0.27 0.17 Total 83.10 55.17 CPIU = central project implementation unit, O&M = operation and maintenance, PPIU = provincial project implementation unit, TA = technical assistance. Source: Asian Development Bank estimates.

4. Project Schedule

Item Appraisal

Estimate Actual

Teacher Secondment Date of Start Completion of Work

III Qtr 1995 IV Qtr 1995

I Qtr 1997 II Qtr 1997

Teacher and Staff Development (i) In-Country Start of Activities Completion of Activities

III Qtr 1996 II Qtr 2000


(ii) Overseas Start of Activities Completion of Activities


I Qtr 2000

IV Qtr 2002

Instructional Materials Start of Tendering and Delivery Completion of Delivery



Consulting Services Date of Award Completion of Work

IV Qtr 1996 II Qtr 2000

IV Qtr 1996 IV Qtr 2002

Studies Date of Award Completion of Work

IV Qtr 1996 III Qtr 1998

I Qtr 2002 III Qtr 2002

Facilities Development Date of Award Completion of Work


II Qtr 1997 II Qtr 2000

Procurement of Furniture and Equipment Date of Award Completion of Delivery


II Qtr 1998 II Qtr 2001

Special Programs Start of Activities Completion of Activities

I Qtr 1995 IV Qtr 2000

III Qtr 1996 II Qtr 2001

Project Implementation and Management Start of Activities Completion of Activities



QTR = quarter.

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5. Project Performance Report Ratings

Rating Implementation Period Development Objective

Implementation Progress

From 18 Jul 1995 to 31 Jul 1999 Satisfactory Satisfactory

From 1 Aug 1999 to 30 Jul 2001 Partly satisfactory Satisfactory

From 31 Jul 2001 to 29 Nov 2001 Satisfactory Highly satisfactory

From 30 Nov 2001 to 29 Apr 2002 Satisfactory Satisfactory

From 30 Apr 2002 to 31 Jul 2002 Satisfactory Partly satisfactory

From 1 Aug 2002 to 30 Aug 2002 Satisfactory Satisfactory

D. Data on Asian Development Bank Missions

Name of Mission Date No. of

Persons No. of

Person-Days Specialization of

Membersa Appraisal 6–28 Feb 1995 5 60 a,b,c,e Inception 23–26 Jan 1996 1 4 a Review 14–21 Oct 1997 2 16 a,d Review 23 Feb–6 Mar 1998 2 24 d,f Special Loan Administration 28 Sep–3 Oct 1998 1 6 d Review 20 Apr–3 May 1999 2 28 c Special Loan Administration 25–27 May 1999 1 3 d Review 9–30 Jul 1999 1 22 d Midterm Review 4–15 Apr 2000 2 24 d,f Review 13–17 Nov 2000 1 4 d Review 19 Jul–9 Aug 2001 (intermittent) 1 7 d Review 3–7 Dec 2001 2 10 d,f Review 10–19 Apr 2002 2 20 d,f Project Completionb 27 Oct–15 Nov 2003 4 72 d,e,g a a = project economist, b = programs officer, c = counsel, d = education specialist, e = consultant, f = project analyst, g =

national officer. b The PCR was prepared by W. Duncan, education specialist; C. Fajardo, project officer; and C. Bangay, consultant.

I. PROJECT DESCRIPTION

1. The Private Junior Secondary Education Project was approved on 18 July 1995 for $49 million and became effective on 3 October 1995. The loan closed on 30 August 2002 after a 12-month extension at no additional cost. The original loan amount was reduced to $33.6 million after cancellation of $15.4 million. The Project supported government efforts to expand universal basic education (UBE) up to grade 9 and to provide educational opportunities to all school-age children at the lowest total cost. The objectives were to (i) improve the quality and sustainability of private junior secondary education (JSE), (ii) enhance access of disadvantaged groups to private JSE, (iii) upgrade private schools and Islamic boarding schools (pesantren), and (iv) strengthen the institutional framework that manages and coordinates the delivery of private JSE. 2. The executing agency (EA) for the Project was the Directorate-General of Primary and Secondary Education (DGPSE) of the Ministry of Education and Culture (MOEC), through the Directorate of Private Schools (DPS). In 2001, the name of the ministry was changed to the Ministry of National Education (MONE), and the implementing directorate became the Directorate for Junior Secondary Education, DJSE (see para 23). The Project covered around 990 schools in 11 districts of East Java, Lampung, South Kalimantan, South Sulawesi, and West Java. 3. The Project sought to improve the quality and sustainability of private JSE by improving the quality of teaching, enhancing educational resources, and strengthening school management. To improve the quality of teaching, the Project supported a teacher-upgrading program, provided contract teachers, and established local education centers (LECs) to provide teachers at private schools with in-service training. School management was strengthened through a principals’ management training program. To improve educational resources, schools received instructional materials and new classrooms, libraries, and science laboratories, while the LECs also expanded the resources available to teachers. Greater equity was promoted through an education services contracting scheme for low-income students, especially girls. Private schools in depressed rural areas and pesantren with JSE programs were upgraded though a similar mix of inputs (provision of new facilities, materials, contract teachers, teacher upgrading, training of principals). To strengthen the institutional framework of the private school system, officials from MOEC, private school not-for-profit foundations (yayasan), and the Council of Private School Foundations (BMPS) were trained in financial planning and management; the accreditation process was supported financially; and an education management information system (EMIS) covering private schools was established within DPS, with staff trained at the national, provincial, and district levels. Finally, to rationalize private school coverage and reduce the number of small, unviable schools, the Project provided support for a school mapping exercise and a study on the rationalization of private schools. 4. The Project was implemented during a period of unprecedented social and political change in Indonesia. The Asian financial crisis of 1997/98 and its resultant sociopolitical impact, the decentralization of educational management, and changes in the institutional arrangements for project implementation all impacted on project performance.

II. EVALUATION OF DESIGN AND IMPLEMENTATION

A. Relevance of Design and Formulation

5. The Project was designed in the context of the Government’s 1989 Education Act (which formally recognized the integral role of private education in the national education system), the

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national planning document REPELITA VI (FY1994/95–FY1998/99), and the country operational strategy of the Asian Development Bank (ADB) for Indonesia.1 The Project supported the Government's policy to expand UBE to 9 years by harnessing the capacity of private JSE schools. Private JSE schools are community schools catering predominantly to poor students who are disadvantaged by academic selection processes. Many live in rural areas. The report and recommendation of the President (RRP) correctly identifies the challenge to be one of increasing the demand for private JSE in the light of parental perceptions that public JSE was both of higher quality and cheaper. The RRP states that a critical factor in achieving the desired project goals would be the ability of the Government to regulate JSE provision, so that the public sector would complement rather than compete with the private sector. In the years immediately preceding the Project, enrollments in private JSE schools declined nationally by 30%. In the light of this strong national trend, the project goal of increasing private school enrollments was ambitious. The project logic was based on the premise that, by providing physical facilities, educational equipment, instructional materials, staff training, and institutional strengthening, the quality of private junior secondary schools could be improved, which would attract more students and thereby enhance financial sustainability. 6. Maximizing benefits from investment in LECs and ensuring their sustainability became an important focus of the Project. Twelve LECs2 were included in the Project to serve as training and resource centers for JSE teachers from surrounding private schools. LECs were also expected to improve school management by training principals. It was anticipated that each LEC would serve 50-60 surrounding private schools, which would in turn help sustain the LECs by contributing to their operational costs. Ultimate responsibility for management and financial support for each LEC lay with the yayasan that provided the site. DPS would carry out academic supervision and provide professional support by monitoring financial reports and conducting regular visits. 7. To extend the outreach and efficiency of LEC training activities, the number of trainers, or master teachers, in the 12 LECs was expanded during the Project and small resource centers established in schools around the LECs to promote school-based teacher training. However, the funds required to run the LECs as self-financing institutions proved far beyond the minimal levels of disposable income available. The situation became such a concern that a 1-year project extension was agreed upon to attempt to develop and foster sustainability strategies for the LECs. The new direction focused on developing the LECs as self-financing businesses, albeit with an educational mission. 8. Overall, the strategy for quality improvement was sound and the academic performance of students as reflected in national examinations in project schools did improve. However, the project goal of improving the financial sustainability of Project schools proved elusive in the context of the Asian financial crisis, as many poor families could no longer afford private school fees. The continuing major disparities in inputs between the public and private sectors, which enabled public schools to offer equivalent quality education at lower cost, reinforced the trend away from private schools. However, it should be stressed that through this Project, many students were given access to JSE and, subsequently, to senior secondary education that they may not have had otherwise.

1 ADB. 1993. Indonesia: The Country Operational Program Paper 1993–1996. Manila. 2 An additional LEC was constructed in South Kalimantan using Government funds, outside the Project.

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B. Project Outputs

9. Details of the Project’s key components and performance against the original targets are in Appendix 1. The Project performed very well in achieving its targets, with an average achievement rate of 112%. Additional performance targets were established for the extension period, mainly in relation to the LECs, and these were achieved successfully as well (Appendix 2). Details of the percentage completion rate against all the original project targets are in Appendix 3. The only area where targets were not achieved was in the provision of teachers’ guides, as MOEC had begun to distribute the guides nationwide in a separate project.

1. Improving the Quality and Sustainability of Private JSE 10. The Project was successful in both raising national examination scores and stabilizing enrollment during a period of economic hardship (when higher dropout rates could be expected) and can therefore claim to have improved quality and sustainability, as well as contributing significantly to Indonesia’s’ goal of UBE. 11. The seconded, or contracted, teacher program was identified by the project monitoring and evaluation system as very successful in supporting the teacher-training program and improving school quality. The Project provided 8,109 person-years of full-time teachers, which equates to 1,733 teachers versus a target of 1,200 (144% achievement). The aim of the program was twofold—to provide replacement teachers for those being trained, and to support schools by reducing their dependence on part-time teachers. The provision of full-time teachers had a positive impact, as these teachers were able to dedicate more time to classroom preparation and to contribute to the wider activities of the school community. In addition, project payment for full-time teachers reduced school salary expenditures, thereby releasing funds for nonsalary expenses. This was the first time that such a program had been implemented in Indonesia, and it was judged so successful that the provision of contracted teachers to schools is now a key component of MONE’s core program for school support. 12. The Project supported training for 6,427 teachers from a target of 6,100 (105% achievement). In the eagerness to meet physical targets, most of the teacher training was completed in the first year of the Project, which did not allow for a systematic process of evaluation and feedback to improve the quality and relevance of the courses. The desire to meet numerical targets quickly led to around 22% of trainees being selected from nonproject private schools and public schools. One reason for this was the fact that many yayasan-employed and part-time private school teachers were reluctant to absent themselves from their work because they were paid only for hours when they actually taught. 13. The teaching-learning resources of private schools were also significantly strengthened with the Project exceeding targets in many areas. Twelve LECs to serve as education resource centers were built and equipped; 499,839 textbooks were distributed against the target of 500,000, achieving a textbook-to-student ratio of 1:1. A 100% completion rate for distribution of reference book sets was achieved and the target for distribution of science kits was exceeded by 307 sets. School facilities were upgraded using an innovative matching grant scheme for the first time in Indonesia. This program proved so successful that it is now the standard mechanism for all education facilities upgrading programs run by MONE and other funding agencies. The construction of school libraries exceeded physical targets by 925 units while the provision of 696 science laboratories also exceeded the target of 430. While there are concerns regarding the full utilization of these facilities, it can be concluded that in many schools,

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especially the larger ones, the upgrading of facilities certainly enabled the private schools to compete with the surrounding public schools on a more equal footing. 14. Training activities that focused on strengthening school management also exceeded the targets substantially: 1,095 school principals were trained against a target of 560; 1,138 financial administrators, against a target of 600; 837 librarians, against a target of 270; and 1,028 science laboratory technicians, against a target of 430.

2. Enhancing Access of Disadvantaged Groups to JSE 15. Efforts to enhance access to JSE were achieved through a grant-in-aid assistance program that provided stipends to disadvantaged families in depressed rural areas and low-income urban areas, as judged by a village committee. During the early years of the Project, 67,991 person-years of stipends were provided to students in depressed rural areas, far exceeding the target of 27,000. The stipend program was expanded to offset the effects of the financial crisis. As required, 60% of the beneficiaries of the grants were female. In a further response to the financial crisis, the Project added a new form of assistance to the schools—650 block grants to support running costs. The target of providing 2,000 bicycles to students to ease their access to school was also met. The stipend program was removed from the Project and merged in 1997 with the multiagency (World Bank, ADB, and Dutch Government) national social safety net program, which was established to overcome the negative impact of the financial crisis on the poorest segments of the population.3

3. Upgrading Private Schools and Islamic Boarding Schools 16. The project design specifically targeted schools in depressed rural areas and Islamic boarding schools that included private schools offering the national JSE curriculum. For both types of schools, the physical targets for all project interventions were met or exceeded. The exception was the teacher-upgrading program, which achieved only 88% of the target in depressed rural areas and 77% for boarding schools. The shortfalls were due to difficulties in communicating with remote areas and the potential salary loss for private school teachers.

4. Strengthening the Institutional Framework to Deliver JSE 17. The Project contributed to strengthening the institutional framework through human resource development and institutional capacity building. A successful overseas master's degree program involved 22 government officers, many from the district level for the first time. As many of the district recruits could not pass the English test, additional intensive English language training was provided. Further 88 people benefited from short-term training in management, education finance, and private education finance. An EMIS covering private schools was established in DPS and initial training on the system carried out at provincial and district levels. Support was provided to help speed up the school accreditation process, with the result that 862 schools were accredited during the Project (target 850). The capacity of yayasan and the umbrella organization for yayasan was strengthened through training in management, accreditation, and a comparative study visit. All targets were met successfully. Finally, a school rationalization policy study was carried out, but not the planned school mapping to identify potential school closures and mergers, as it was agreed that MOEC did not have the power to consolidate or close private schools. 3 ADB. 1998. Project Completion Report on the Social Protection Sector Development Program in Indonesia. Manila.

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C. Project Costs

18. At appraisal the total project cost was estimated at $83.1 million equivalent. Of this amount, ADB was to finance $49.0 million, the Government was to finance $29.2 million, and the private sector $4.9 million. The actual project cost amounted to $55.2 million equivalent, of which the Government financed $19.5 million (35.3%); the private sector, $2.1 million (3.8%), and ADB, $33.6 million (60.7%). 19. On 16 July 1998, the remaining stipend allocation of $4.1 million under the loan was cancelled and the program amalgamated into the national social safety net program. Following portfolio-restructuring exercises in September 1999 and March 2001, further loan savings amounting to $2.2 million and $5.6 million, respectively, were made due mainly to the devaluation of the rupiah. On loan account closing on 30 August 2002, the unutilized loan balance of $3.5 million was cancelled. A detailed breakdown of costs is in the Basic Data section and in Appendix 4. D. Disbursements

20. The loan funds were utilized through the imprest account with a maximum imprest account ceiling of $1 million, and a maximum statement of expenditures ceiling of $0.2 million per item of expenditure. To limit leakage from payments to schools and seconded teachers, bank accounts were established and payments made directly to these accounts by the central project implementation unit (CPIU). E. Project Schedule

21. The Project was approved on 18 July 1995 and declared effective on 3 October 1995. The original closing date of the loan was 30 April 2001 but this was extended once until 30 April 2002 to assist the LECs to prepare for their postproject existence in the new era of decentralization. The loan account was closed on 30 August 2002, the date of the last disbursement. A detailed project implementation schedule showing physical achievement by component over time against the planned implementation schedule is in Appendix 5. F. Implementation Arrangements

22. During the last year of implementation, responsibility for the Project switched from DPS to a new directorate resulting from the merger of DPS and the Directorate for General and Secondary Education. The new directorate, DJSE, was responsible for both public and private JSE. This enhanced the prospects for sustainability of project inputs but caused a temporary disruption in implementation. 23. As the Project was ADB’s first to specifically target private schooling in Indonesia, every effort was made to assist the EA. To this end, ADB conducted early training on ADB’s guidelines and procedures, and assisted in forward planning of project activities. Within 2 months of project start-up, the CPIU was fully staffed while the 5 provincial project implementation units (PPIUs) were staffed within 6 months. However, there was some evidence of weaknesses in project implementation and management. The most serious was found in implementation of the scholarship program. After receiving reports of unauthorized deductions at the provincial level from scholarship payments to children, the newly formed Office of the General Auditor (OGA) in ADB requested an investigation by the Inspectorate General of MOEC. This was the first case to be handled by OGA. The investigation confirmed that

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scholarship payments had been made in cash contrary to ADB instructions, and that unauthorized deductions had been made. MOEC acted swiftly to remove from the Project the staff deemed responsible, and repaid to ADB the amounts deducted without authorization. OGA declared the case closed satisfactorily. G. Conditions and Covenants

24. Compliance with the major conditions and covenants was satisfactory. Audited financial statements and progress reports were submitted generally on schedule. The details of compliance with the loan covenants are in Appendix 6. H. Consultant Recruitment and Procurement

25. International and domestic consultants were selected and engaged in accordance with ADB’s Guidelines on the Use of Consultants. The Project engaged two packages of consulting services: (i) Package I, school management and training consultants; and (ii) Package II, project operation and management consultants. The consultants’ inputs for both packages were 99 person-months international, and 332 person-months domestic, compared with 147 international and 516 domestic in the original project design. The consultants' contract was signed about 17 months after loan effectiveness, and consultants were fielded in mid-1997. Advance action for consultant recruitment was approved under the Project but was not utilized due mainly to the EA's unfamiliarity with the procedures. As it had never recruited international consultants before, the EA took several months to finalize the bidding documents to the satisfaction of the Government and ADB. The needed revisions to the bidding documents and a long internal Government review process delayed the fielding of consultants. The splitting of the consultancy inputs into two technical and implementation packages did not work well, as in reality the two are intrinsically linked. A more logical arrangement would have to been to have an independent monitoring unit tasked with the establishment of the EMIS and benefit monitoring and evaluation (BME). I. Performance of Consultants, Contractors, Suppliers

26. Overall, the performance of the consultants was considered satisfactory, with attention being drawn in various aide memoire to the value of their contributions in promoting wider project goals. The 17-month delay in mobilizing the consultants had a deleterious effect on implementation particularly in the establishment of a baseline for BME and in teacher training. Contrary to the project design, the bulk of teacher training was undertaken in 1996/97, removing the opportunity for combining practical, on-the-job and theoretical approaches as would normally be expected of such a program. 27. The performance of the suppliers and the quality of instructional materials and science equipment including computers were generally satisfactory. Field visits and aide memoire show considerable variation in the quality of furniture provided to project schools and LECs in different provinces, indicating varying levels of quality and fiscal control. Similar findings were recorded in the PCR for the Basic Education Project4 covering madrasah, suggesting this is a common area of concern in Indonesia.

4 See footnote 4.

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J. Performance of the Borrower and the Executing Agency

28. The Government demonstrated commitment to implementing the Project as envisaged. The CPIU and PPIUs were established as scheduled. The logistical capacity of the CPIU was strong, but it was weak with regard to project quality issues. To help overcome this, a project management committee was formed within DPS at the request of ADB, to support the project manager and oversee project implementation. The committee met frequently and helped to strengthen decision-making and improve project quality. In the final years of the Project, the increasing power of the provinces as a prelude to decentralization undermined the authority of the project manager. PPIUs did not always follow guidelines, and some key decisions regarding training and resource allocation made by the provincial government officials were inappropriate. A serious issue that led to implementation delays was the frequent changes in project management in a couple of provinces. 29. During the Project, the Government was unable to address effectively the issue of competition between the public and private sectors. This failure had a negative effect on achievement of key project targets, particularly in the area of student enrollments. The twin objectives of reaching the disadvantaged while enhancing the sustainability of project schools are inherently conflicting. Disadvantaged children generally predominate in the smaller private schools and madrasah. As such schools are non-profit, community based, and dependent on (low) school fees, they are particularly vulnerable to competition from public school expansion. To alleviate this effect, a coherent policy framework and more effective regulatory mechanisms were needed. The performance of the Borrower and the EA is therefore rated as partly satisfactory. K. Performance of ADB

30. The overall performance of ADB was satisfactory. Throughout the implementation period, ADB maintained a positive relationship with directorate staff and consultants. Project supervision was done in a timely and efficient manner after the first 2 years, with biannual review missions. In total, 12 missions (187 staff-days) were fielded during the project lifetime. However, lack of ADB supervision during the first 2 years had some negative consequences that were difficult to correct later. In particular, the implementation strategy followed the traditional supply-driven rather than the new demand-based approach, the recruitment of consultants was delayed, the teacher-training program was implemented too hastily, and the expansion of LEC facilities was unrealistic. Proper supervision by ADB during this period could have overcome some of the problems. The system put in place by ADB to handle suspected malfeasance led to a successful resolution of the misuse of funds in the scholarship program. In addition, ADB responded promptly to the changed circumstances of the financial crisis by including additional social safety net items in the loan proceeds.

III. EVALUATION OF PERFORMANCE

A. Relevance

31. The Project was in accordance with both government policy and ADB sector strategies at the time of appraisal, and contributed to increasing access to 9 years of basic education, particularly among the most disadvantaged sections of society. When external conditions changed as a result of the Asian financial crisis, the Project responded quickly to mitigate the worst effects of the crisis on the private education sector by allocating loan funds for block grant support to schools and LECs, student scholarships, and salaries for seconded teachers.

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32. The project design addressed successfully the key resourcing and skill issues in both private schools and the organizations administering private JSE. The project design correctly identified the importance of an effective EMIS as the basis for efficient and rational resource allocation, and also correctly identified the significance of BMPS in representation of and advocacy for the private sector. Through financial and management training, the Project contributed to the development of this organization. At the time of project design, the LECs were an appropriate strategy for supporting quality improvement in private schools. Unfortunately, four factors combined later to undermine their potential for sustainability: (i) the financial crisis, which reduced the opportunities for revenue generation; (ii) the optimistic vision for the LECs developed later by DPS that resulted in running costs higher than planned; (iii) the inappropriate location of some LECs (depending on land donations); and (iv) the decentralization of the LECs to the districts. As, none of these events could have been foreseen in 1994/95 when the Project was designed, the Project is therefore judged as relevant. B. Efficacy in Achievement of Purpose

33. The Project was effective in raising the academic performance of students from participating schools over and above national averages, and managed to keep enrollments stable during the project period, despite the serious economic impact of the Asian financial crisis on the private sector. While enrollments have increased in one project province since the Project ended, the overall pattern has been one of declining enrollments. However, it is clear the improved academic performance in project schools has allowed more students to enter senior secondary school, where the economic returns are greater. 34. Data from the project BME show that the average performance of project schools in the national exit examination for JSE increased from 4.0% in SY1996/97, to 5.03% in SY1999/2000. Though average project school attainment remained lower than that in public schools, overall performance increased by 0.5 points, compared with a national government school average improvement of 0.26 points during the project period (Appendix 7). 35. The PCR team extended the analysis of examination scores up to SY2001/02. The average score for project schools was found to have increased a little since the end of the Project, to 5.12. An even greater positive impact can be seen in the scores for different subjects. Science performance improved by more than 17% between SY1997/98 and SY2001/02, while both mathematics and English improved by around 8%. This illustrates the successful impact of efforts to improve the quality of teaching and learning, as these three subjects formed the primary focus of project interventions. 36. Overall, student enrollment during the project period mirrored national trends. Enrollments decreased as a result of the Asian financial crisis, but recovered to original levels by SY1999/2000. This is a significant achievement for private schools serving families that generally continued to suffer economic hardship even after the crisis. Notable differences were evident among provinces, with West Java recording a 14% increase from SY1995/96 to SY1999/2000, and South Kalimantan a 30% decrease. This may reflect local policies on support to the private education sector including stronger public-private sector complementarity, as well as the ability of parents in different provinces to pay private school fees. 37. The analysis of enrollment data was extended up to SY2002/03, using data from the EMIS established under the Project. The proportion of project schools registering enrollment increases was 53% for West Java, 49% for Lampung, 47% for South Sulawesi, 36% for South

9

Kalimantan, and 21% for East Java. For these schools, there is good potential for sustainability. Overall project enrollment trends, however, continued to mirror the national trend by showing a steady decline in private JSE enrollment in the face of competition from public schools. While this is disappointing, the decline in enrollment among project schools at 11% is lower than the national decline in private schools of 19%. The Project was successful in helping stem falling enrollments overall, and helped boost enrollments in 42% of the project schools. 38. The provision of full-time seconded teachers proved a very successful intervention. A clear synergy was evident between the presence of seconded teachers and the use of other teaching aids (books, science kits, etc.) provided by the Project. Schools heavily dependent on part-time teachers (who, through necessity, are only at the school for short periods) were less able to exploit the potential of the resources provided. 39. Participant and third-party evaluations of training activities are overwhelmingly positive. The matching grant program for facilities upgrading, for which the community provided about 30% of the resources required, exceeded expectations and was a successful innovation in cost sharing in education. The facilities provided through the program improved community perceptions of private schools and increased the potential for quality education delivery. However, field visits suggest that some of the facilities provided may have been underutilized. In some schools, too little emphasis was given to the proper use of libraries and library books to aid learning. A more appropriate strategy, particularly given the size of many project schools, may have been classroom-based cupboard libraries. Similarly, science laboratories have been underutilized because of: (i) the absence of any need to undertake practical science learning since the national examinations test only theory; (ii) the cost of science consumables; and (iii) the difficulties faced by time-pressed part-time teachers in setting up practical activities. 40. The training provided by the project to the BMPS, an important stakeholder, focused on improving administration and management. Evaluations and field reports indicate that the Project was successful in this task. However, given the ongoing expansion of public junior secondary schools, predominantly at the expense of private schools, greater efforts in support of more effective advocacy for private JSE would have been beneficial. 41. Overall, the Project has contributed to the Government’s UBE goals by increasing access to JSE. The Project stabilized enrollment at a time of economic hardship when the dropout rate was expected to increase. The Project also enhanced educational experience for disadvantaged sections of the population who, without the interventions, could not have had that experience. Project interventions have increased opportunities for graduates to enter senior secondary education. Overall, the Project is rated as efficacious. C. Efficiency in Achievement of Outputs and Purpose

42. Evidence from the school survey conducted for the PCR indicates that internal efficiency (dropout and repetition) was stable, if not improved, during the project lifetime, despite the widespread economic hardship resulting from the Asian financial crisis. Similarly, examination scores improved, leading to high graduation rates to senior secondary schools. This is consistent with other findings that JSE tends to be seen not as a terminal stage of education, but preparation for higher-level study.5 The economic returns to JSE are no more than the

5 Moock, P. R., et al. 1998. Central Indonesia Junior Secondary Education Project Appraisal Report. Washington

DC: World Bank; World Bank. 1996. Education and Earnings in a Transition Economy: The Case of Vietnam. Washington, D.C.

10

returns to primary education, while the returns to senior secondary education are much higher. Thus, entry to JSE is seen by parents as a commitment to the full 6 years of senior schooling. 43. In targeting the most disadvantaged sections of the student population, the Project worked with a disproportionate number of small schools (with fewer than 200 students). ADB loan review missions identified, at an early stage, that the ability of these schools to deliver quality education over the long term was questionable. Over time a general shift toward larger project schools was promoted as smaller schools closed and their students were absorbed into larger private or public schools. As a result, the number of small schools declined gradually from 63% to 57% from the beginning to the end of the Project, while the number of schools with 200–400 students increased from 26% to 30%, and schools with 400–700 students increased from 8% to 10%. The project inputs thus became more cost-effective over time. 44. The efficiency of project implementation depended much on the effective use of the EMIS. Good progress was made in the establishment of the private schools database. After the merger of DPS and DSE, the Project was instrumental in driving the integration of the private and public schools JSE data into one unified database. This is functioning well and was the source of the SY2002/03 enrollment data used in the PCR analysis. 45. The intention of the project design was that resources would be directed only to schools that could utilize them effectively and would eventually become self-reliant. The successful matching grant program generally maintained this feature, as it relied on submission of a proposal and contributions raised by the school. In the supply of some other inputs, such as books and training, however, the needs-based approach proved difficult for project management to implement. Though a supply-driven approach is easier, logistically it did result in some irrational allocations in the early years of the Project. The project management team tried hard to reduce such occurrences and, in the final years of the Project, strengthened the demand-based approach considerably by introducing an innovative system of needs-based, locally defined resource allocation for LECs, and competitive tendering for LEC funding. The Project is therefore rated as partly efficient. D. Preliminary Assessment of Sustainability

46. It was assumed that the Project would be sustainable because improvements in educational quality and a financial support program for the poor (the scholarship program) would increase the demand for places in private schools and result in higher revenues for these schools. It was also assumed that the demand for JSE in different sectors (public and private, secular and nonsecular) would grow at a constant rate, and that communities would continue to have disposable income for further investment in JSE. However, the declining trend in private JSE has continued in tandem with the expansion of public JSE. Nationally, there is also some indication of movement from private junior secondary schools to madrasah, which offer JSE at significantly lower cost. These enrollment trends illustrate the potential pitfalls of ineffective regulation of competition between providers of public and private education. Without effective complementary provision, investments made in one subsector may merely promote student flows within the sector and yield little in terms of overall enrollment increases. Therefore, a holistic, systemic approach to the planning of JSE is crucial. 47. A key factor that has emerged is the importance of school size in overall viability. Postproject field assessments indicate that large schools were best able to utilize the facilities and retain the staff trained by the Project; consequently, they consistently report better performance than small schools and have attracted increased enrollments. The importance of

11

size was recognized in the eligibility criteria of the matching grant facilities program. Unfortunately, at implementation it was found that few schools met the minimum size of 200, particularly in underserved areas. The issue of size in relation to quality, community perception, and long-term viability needs further attention. 48. There are also sustainability issues with regard to the LECs. The scale of the buildings and staffing has made it difficult to source the full operational costs from the local private schools and community. It seems clear that some form of government support will be needed. However, some aspects of the governance and management of LECs are not optimal for encouraging this support. The ownership arrangements, for example, stipulate that LEC facilities will revert from the government to yayasan ownership after 25 years because the LECs were built on yayasan land. The lack of clarity on the role of the districts in the supervision and management of LECs further discourages district financial support. Yet this support is critical for ensuring the long-term survival of the LECs, as the districts are now the main commissioning agency for training services. 49. In recognition of the limitations of the LEC target market, the project extension sought to expand their activities by promoting a school-based outreach program and incorporating other educational and community activities into LEC programs. These efforts have in part been successful. Field visits indicated LECs were running a range of community education courses including computer and language courses and all were hiring out their facilities to the local government, the community, and local business entities. One LEC even housed a public service educational radio station. Some LECs had active school-based support programs. But although some success has been achieved in broadening the LEC mandate (and thereby their income), most are still operating on financial reserves generated during the Project. Field research on the seven LECs visited during the Mission revealed poor levels of financial reporting and management. Only one LEC was nearing a break-even point, while the financial records from the others indicated they had sufficient reserves to sustain operations for a maximum of 1 year. 50. ADB aide memoire make clear the need for Government assistance in further developing the LECs. While there was little field evidence of active postproject dialogue between LEC staff and DJSE officials, senior MONE-DJSE officials expressed commitments during the Mission to review the level of support to LECs. These included the intention to undertake a financial review of the LECs with a view to directing support to those with the most potential. This would help consolidate the future of the better-located and better-performing LECs, and allow them to make meaningful contributions to school quality improvement, wider community relations, and life-long learning. This role is broader than originally planned. In the context of the original project intention, the mismatch between running costs and available local resources, exacerbated by the inappropriate location of certain LECs, will constrain the potential of the LECs to fulfill their training functions effectively over the long term. 51. While it is clear that during its lifetime the Project had a significant impact on some of the most disadvantaged sections of the student population, the long-term sustainability of project investments in schools is questionable, given the prevailing national trends of declining private school enrollments. This has resulted partly from the Government's failure to regulate public sector growth effectively at the local level. The Project’s advocacy work with national and local governments on behalf of the private sector has had greater impact, as officials met during the PCR Mission confirmed that current Government policy is to direct public resources to both public and private schools on a proportional basis. This awareness is reinforced by the new

12

Education Law6 that makes no distinction between public and private schools and madrasah, treating all as part of one national system. 52. There is evidence that increased public resources are indeed being directed towards private schools, to help them achieve the minimum conditions of learning. The national Government’s block grant program for JSE schools put a high priority on support to the private sector, with private JSE schools receiving 25% of all block grants for new classrooms in 2003. This was confirmed at the district level. Another new and innovative policy is that the Government is now beginning to build schools for the private sector. In 2003/04, 25% of all new schools will be built for and handed over to yayasan. The PCR Mission was assured that MONE would provide LECs with a grant to cover their operating costs for the next 1-2 years, after which their performance would be assessed. A unit focusing on private sector issues, including the LECs will be established within DJSE. 53. In light of these policy changes and the evident momentum and determination of the Government to address the sustainability issues of LECs and private schools, the Project is judged as having limited sustainability. E. Environmental, Sociocultural, and Other Impacts

54. The Project was successful in delivering an extensive and well-received program of capacity building. The overseas training programs were particularly effective, with all students graduating successfully. As with all such programs, there has been some loss to the system due to movement of staff with enhanced skills to public schools or, in the case of financial managers, to higher paying sectors. 55. School management improved due to the successful management-training program delivered to principals as well as the support received from regular school visits by consultants and school supervisors. Support to improve school management is also provided by the LECs. The contract teacher program has been identified as particularly successful and was recognized as such when the Government adopted it on a national scale. The Project significantly contributed to improving the level of accountability and security in this program by introducing a direct bank transfer payment scheme for teacher salaries. 56. The project was of direct benefit to the poor as almost all of the students attending project schools were disadvantaged. The scholarship program also benefited poor students, poor girls in particular, as 50% of the beneficiaries were girls. In alleviating the effects of the financial crisis, the Project provided continuing educational opportunities to many students who would not otherwise have had the chance to complete their junior secondary education. 57. The Project supported the successful amalgamation of the public and private school directorates by establishing a new EMIS unit and a merged database for public and private junior secondary schools. The equipment is still in place, the unit is well staffed, and data is current. However, only a handful of staff from the former DPS have been incorporated into the new merged DJSE. Of particular concern is the lack of an identifiable unit within DJSE tasked with overseeing private schools. This oversight will be addressed with the establishment of the new focal unit within DJSE. Given the Project's contribution to the institutional development of schools, yayasan, and government officials at all management levels, its impact in this regard is judged as successful. 6 Act of Republic of Indonesia Number 20, year 2003, on the National Education System.

13

IV. OVERALL ASSESSMENT AND RECOMMENDATIONS

A. Overall Assessment

58. Overall the Project is rated successful based on the criteria presented in Appendix 8. The Project met and often exceeded physical targets, and accomplished the desired objective of enhancing educational quality as indicated through improved examination results. The Project was the first in Indonesia to support private schools, provided new insights into the needs of private JSE providers, schools and students, and was an important instrument for private sector advocacy that has resulted in greater financial support for the sector. The Project also introduced important innovations that have become mainstream in Indonesian education at all levels in the public and private sectors. The Project's impact is even more noteworthy, given its implementation during a period of economic hardship. The Project was successful in targeting some of the most disadvantaged sections of the student population and served as a safety net by holding enrolments steady during the financial crisis―an achievement that was over and above the original objectives. However, overall sustainability was always in question. Economic realities and societal perceptions about the relative quality of public and private JSE will remain pivotal and it is unrealistic to assume a project of such limited duration and geographic focus could rapidly influence prevailing conditions. The overall sustainability of impacts is generally most promising in larger schools and least promising in LECs. B. Lessons Learned

59. Optimizing support to the private sector. The Project highlights a critical dilemma facing Government: the economic rationale for focusing resources on the most viable schools set against the right of all children to a good education. It is clear that size is critical for the sustainability of private schools. Given the dependence of private schools on student fees, remote areas with low population densities will seldom be able to fully support self-financing schools that offer quality education. The schools in these areas are the ones most in need of government assistance. Conversely, the areas that offer the most promising conditions for private schools are areas of high population density where large enrollments can be achieved. Field visits indicate that private schools in these areas, however, are most at risk from competition due to the expansion of public schools. Logically this would point to a policy of targeted support, extending help to the most needy schools, i.e., small rural schools, while effectively regulating the growth of public schools in urban areas so as to have complementarity rather than competition. 60. Public-private partnerships. At present, the total annual output from the primary school system is about 4.2 million students. The first year of JSE provides around 3.2 million student places (Appendix 9). Assuming the system is working to capacity, another 1 million places are needed in year 1 of JSE to achieve UBE. As considerable resources will be needed to fund this expansion entirely in the public sector, there is a clear argument for continued, strong fostering of public-private partnerships in JSE provision. The success of any such policy will depend on more effective control of public school growth as well as selective support to the private sector. It is clear that the migration of students among sectors is driven by parental decisions involving both cost and quality factors. To stem such migration, efforts are needed to promote equalization in both areas. This suggests the need to address the inequity in inputs to the private sector (in comparison with the public sector) in order to attain the desired equity in output. The Project has shown how improved quality can boost enrollment and thereby private school sustainability. Project experience suggests that quality can be best improved through

14

long-term commitments to recurrent costs, particularly the provision of full-time teachers, and not through piecemeal or one-off interventions. 61. Systemic approach to education development. The Project has highlighted the importance of taking a systemic, holistic approach to education planning and development. Private JSE is only one subsector of the JSE system. Provision of JSE also falls under the domain of the Ministry of Religious Affairs (MORA) through both public and private madrasah. Analysis of national trends over the last 5 years (Appendix 9) indicates important interplays among these subsectors, with significant student movement not only between public and private JSE but also between the secular and madrasah subsectors. There is a danger that, without a more holistic, sector-wide perspective in project formulation by both Government and funding agencies, future interventions could in effect merely promote student migration between subsectors, without significantly increasing participation in the JSE sector as a whole. 62. Demand-driven approach to project implementation. A fairly strong supply-based resource allocation was evident throughout the Project in the provision of predetermined packages to schools, despite persistent efforts by ADB to promote a more demand-driven approach. In some instances, the allocations proved inappropriate, e.g., classroom construction in schools with declining enrollments. Resource allocation modalities that promote locally defined needs-based allocation should be encouraged, since they can drive local school and community-based planning. 63. Priority project interventions. The project experiences indicate that impact is most evident the closer an intervention is to the beneficiary. The seconded-teacher program has been particularly successful in this respect. This is a noteworthy area as it has the potential to fulfill many of the Government’s avowed policy objectives (i.e., supporting private schools, promoting school-based management, and enhancing quality). Salary costs constitute the major item of expenditure for the majority of private schools. Thus, providing government-funded contract teachers reduces salary expenditures, and, in turn, frees up funds that the school management can then use for other items. Furthermore, as previously noted, the provision of full-time teachers to private schools has the potential to yield quality improvements in the classroom. The importance of teachers in parental perceptions should not be underestimated. In comparison with nonearmarked grant support, contract-teacher deployment offers a lower risk method of providing budgetary support while also facilitating greater contact with the private sector. Moreover, the great advantage of providing support through contract teachers is that they are both more "upgradable" and "movable" than physical facilities. C. Recommendations

1. Project-Related

64. Clarify who is responsible for LECs. The review of LEC financial data indicates that most LECs are funding their operations from rapidly depleting reserves. There is an urgent need to clarify government responsibilities regarding the LECs. It is understood that MONE, through DJSE, is currently responsible for LECs. If the directorate intends to retain this responsibility, it should charge one of its units with the task of monitoring LEC performance, and communicate this clearly to districts and LECs. Quarterly reports focusing on person-day utilization and income-expenditure data, and independent annual audits of LEC accounts should be mandatory. Alternatively, responsibility for LECs could be transferred to district education authorities, as it is from the districts that the LECs have been encouraged to seek financial support. Given the financial challenges facing many districts since decentralization, however,

15

this option should be considered carefully in the context of district financial resources on a case-by-case basis. 65. Improved information management. Throughout the Mission, it was difficult to obtain project documentation. This resulted partly from the directorate merger and the physical movement of offices and resources. It is clear, however, that overall "knowledge management" could be improved through a better system of information storage and retrieval. Furthermore, no one in DJSE has been tasked with continued monitoring of the Project. This situation should be rectified before the ADB project performance audit report recommended for 2005.

2. General

66. Strengthened project implementation. The project performed well by exceeding the planned targets. However, future project performance could be enhanced by (i) ensuring that competent project managers are present at the national and local levels for the duration of the project by including this in the project assurances; (ii) providing close supervision and support to inexperienced EAs as early as possible by fielding the first mission soon after loan approval; (iii) providing adequate training in new approaches such as the needs-based or demand-driven approach; (iv) strengthening the capacity of the Government auditors (BPKP) to carry out accurate and meaningful audits by checking systematically on the inputs actually received by schools; and (iv) providing for independent monitoring and evaluation to the extent possible. 67. Decentralized EMIS. While the EMIS for JSE established by the Project has continued to function well, the national EMIS, of which it is a part, needs to be adapted to the new decentralized system of education management. To ensure the continued credibility of the national education statistics, comprehensive reform of current procedures and processes is needed to increase school coverage and ensure accurate data. A more efficient and integrated approach covering a more schools would greatly facilitate accurate resource allocation. 68. Government support to the private sector. The amalgamation of the two directorates in DGPSE that formerly dealt with public and private JSE separately was sensible, as this allows MONE to treat public and private junior secondary schools as part of one complementary system. The weakness in the amalgamation was that little knowledge or experience of the private sector was transferred. The new directorate remains focused on the public sector, as does the district level. Consequently, there is only limited sensitivity to the particular challenges facing the private sector, although there are positive changes in this regard. The recent policy to assist private JSE schools to achieve the minimum conditions for learning is a positive development, but will require substantial resources. Effective support is not solely about the amount of support but how and to whom it is given. In the Project, the most beneficial interventions were those giving modest support to recurrent costs. The effectiveness of support will depend in part upon a supportive policy and regulatory framework. 69. Understanding private sector challenges. MONE must recognize that governance of the public and private sectors differs significantly and that different policy responses may be required, especially in the promotion of school-based management. The current structure of the national directorate and district education offices does not foster this understanding because there is no clear entry point for the private sector and no forum for advocacy. Without a deep understanding of the particular challenges faced by private JSE, it will be more difficult for MONE to formulate effective initiatives to strengthen the partnership and harness the full potential of the private JSE sector to help the Government reach its new target of a JSE enrollment rate of 95% by 2008.

Appendix 1 17

PERFORMANCE SUMMARY AGAINST THE LOGICAL FRAMEWORK

Note: The following logical framework records actual performance against the original framework indicators. In this table, the original column headed “outputs/benefits/beneficiaries” has been replaced with a column recording performance and now headed Output (Actuals). Project Goal The Project supports Government efforts to provide quality junior secondary education (JSE) to all eligible students at the lowest total cost by improving the educational standards and sustainability of the private JSE system within the context of Government policy to expand universal basic education up to grade 9 and to provide educational opportunities to all school-age children. Component and Objective Component (i) : Improving Quality and Sustainability of Private Junior Secondary Education Objective : Upgrade the quality standards of private junior secondary schools to encourage greater enrollment thereby enhancing sustainability. Component (ii) : Enhancing Access of Disadvantaged Groups to Junior Secondary Education Objective : Provide JSE opportunities to needy children Component (iii) : Upgrading Private Junior Secondary Schools and Pesantrens Objective : Better equip private junior secondary schools in the economically depressed areas and in traditional Pesantrens to provide quality JSE Component (iv) : Institutional Strengthening Objective : Improve the capability of institutions involved in the development, regulation, and management of private junior secondary schools

18 Appendix 1

Component (i): Improving Quality and Sustainability of Private Junior Secondary Education

Design Summary Output (Actuals) Indicators Assumptions (i)1. Improving the Quality of Teaching ($11.3 million) Inputs:

• Teacher secondment • Teacher training • Specialist services

Average NEM score among project schools increased from 4.00 (1996/97) to 5.03 (1999/2000). Average project school NEM attainment increased by 0.5 point compared with the National Government school average of 0.26 during the project period. Enrollment figures stabilized during the project period but with the exception of West Java, have declined subsequently. 1,733 of target 1,740 seconded teachers recruited. However deployment included nonproject and government schools. BME report identifies seconded teacher program as most significant factor in NEM improvements. Of target 9,122 teachers, 9,335 teachers were trained. However, nearly 33% of teachers trained were drawn

• EBTANAS results in project schools

• Stable or growing enrollment in project schools

• Number of full time trained teachers

• Person-months of training and specialist services

Basis: MOEC quality assessments, midterm review, ADB missions, school attendance and examinations records, interviews with parents

• Timely and predictable deployment of suitably qualified teachers for secondment

• Teachers available for

training without disrupting school

Appendix 1 19

Design Summary Output (Actuals) Indicators Assumptions from nonproject private schools and the public system. Targets for provision of specialist services were 100% achieved.

(i) 2. Enhancing Educational Resources ($23.6 million) Inputs:

• Civil works • Furniture • Staff development • Reference and

instructional materials • Specialist services • Specialist program for

facilities improvement

See above re: exam scores and enrollment. 780,000 textbooks distributed exceeded targets by 280,000. Ratio of 1:1 textbook to student is achieved. Reference book set distribution was achieved 95%. 12 LECs were built and equipped. 609 science kits distributed exceeded target of 470 Supply of 1,600 teachers guides cancelled on grounds that the activity should be consolidated under a World Bank textbook project. Renovation and establishment of facilities met or exceeded targets. Target-to-achievement ratios follow:



• Number of textbooks and teachers guides

• Survey of efficiency of their allocation and delivery to schools

• Number of facilities renovated and established

• Survey of usage of project facilities

• Level of usage of improved learning models

• Person-months of staff training and specialist services

Basis: MOEC quality assessments, midterm review, MPS reports on the use of LECs, school library records

• Libraries, laboratories, and instructional materials used regularly and effectively

• Library and laboratory staff available

• Common use facilities (LECs) regularly utilized and properly maintained by participating schools

20 Appendix 1

Design Summary Output (Actuals) Indicators Assumptions Libraries: 436:891 Laboratories: 488:488 Targets for provision of specialist services were 100% achieved.

(i) 3. Strengthening School Management ($1.7 million) Inputs: Staff and systems development

Training of staff exceeded physical targets. Target-to-achievement ratios follow: School principals: 974:1,095 Financial admin: 678:1,138 Librarian training: 400:833 Lab technicians: 470:1028

• Person-months of staff training

• Financial statements to be provided semi-annually by project schools to DPS

Basis: MOEC assessments, midterm review, ADB missions, school reports, and financial records

• Timely training of principals and school administrative staff

• Commitment of Yayasan to improve school financial management

(ii) 1. Education Services Contracting in Depressed Rural Areas ($2.3 million) Inputs: Special program for financial assistance, specialist services

Provision of support to depressed rural areas met or exceeded physical targets. Target-to-achievement ratios follow: Grant in aid (GIA): 62,520:67,991 Block grants: 650:650 Bicycles: 2,000:2,000 Targets for provision of specialist services were 100% achieved.

• Number of students assisted

• ESC scheme operational by 1996

• Person-months of specialist services

Basis: MOEC assessments by income level and gender, ADB missions, midterm review and school reports, interviews with parents associations

• Operational guidelines set up

• Equitable standards adopted

• Transparent selection process

• Adequate financial controls

• Appropriate guidance from MOEC

(ii) 2. Education Services Provision of support to low- • Numbers of students • Operational guidelines

Appendix 1 21

Design Summary Output (Actuals) Indicators Assumptions Contracting in Low-income Urban areas ($4.3 million) Inputs: Special program for financial assistance, specialist services

income urban areas was transferred in mid-project to the World Bank coordinated social safety net program. Original project targets were not met: Grant in aid (GIA): 145,539:29,138 Pesantrens GIA : 25,957:13,072 Targets for provision of specialist services were 100% achieved.

assisted • ESC scheme

operational by 1996 • Person months of

specialist services Basis: MOEC assessments by income level and gender, ADB missions, midterm review and school reports, interviews with parents associations

set up • Equitable standards

adopted • Transparent selection

process • Adequate financial

controls • Appropriate guidance

from MOEC

(iii)1. Private Junior Secondary Schools in Depressed Rural Areas ($6.0 million) Inputs: Civil works, furniture, staff development, reference and instructional materials, specialist services, teacher secondment

Upgrading private schools in depressed rural areas generally met or exceeded physical targets. Target to achievement ratios follow: See above for NEM and enrollment data Teachers trained: 1500:1504 Teacher provision (person years): 1500:1475 Textbooks: 60,000:105,550 Libraries upgraded: 96:192 Laboratories: 139:139 Librarian training: 90:194 Lab technician training: 90:194 Reference book sets: 80:80



• Number of full-time and trained teachers



• Efficiency of their allocation to project SMPs

• Number of facilities renovated and/or upgraded

• Survey of usage of


• Teachers available for training without disrupting school



• Strong local community support

22 Appendix 1

Design Summary Output (Actuals) Indicators Assumptions Science kits: 90:101

project facilities Basis: MOEC assessments, midterm review, ADB missions, school attendance and examination results, school library records

(iii)2. Pesantrens with JSE Programs ($4.0 million) Inputs: Civil works, furniture, staff development, reference and instructional materials, specialist services, teacher secondment.

Upgrading pesantren with JSE programs met or exceeded physical targets. Target-to-achievement ratios follow: EBTANAS and enrollment targets see above. Teacher training: 1,000:1,000 Teacher secondment 950:993 Textbooks: 18,000:46,745 Library provision: 62:112 Laboratory provision: 69:69 Librarian training: 60:121 Lab technician training: 60:126 Reference books: 50:50 Science kits: 60:67


• Stable or growing enrolment in project schools

• Number of full-time and trained teachers



• Efficiency of their allocation to project SMPs

• Number of facilities renovated and/or upgraded

• Survey of usage of project facilities

Basis: MOEC assessments, midterm review, ADB missions, school attendance and examination results, school library records


• Teachers available for training without disrupting schooling



• Strong local community support

Appendix 1 23

Design Summary Output (Actuals) Indicators Assumptions (iv)1. Strengthening DPS and Provincial and District Offices ($3.4 million) Inputs: Equipment, staff development, specialist services

Database was established and consolidated during merger of private and public junior secondary directorates. All listed equipment purchased and installed: However, impact impaired by

• Decentralization process, leading to deterioration in information gathering and processing

• Incomplete data sets • Continuing staff

capacity/continuity issues

Rational and timely allocation of resources based on need identified by EMIS remains weak. Overseas training: 22 persons trained to master level—100% completion.

• Detailed database for private JSE schools established within DPS by 1996

• DPS data analysis capacity strengthened

• Assistance to private schools carried out predictably, on time and efficiently

• Person-months or years of training

• Equipment acquisition • Person-months of

specialist services • Assessment of staff

productivity before and after training

• Assessment of relevance of training received

Basis: MOEC assessments, mid-term review, ADB missions

• Proper guidance from MOEC

• Staff available for training

(iv)2. Strengthening the Accreditation Process ($0.2 million) Inputs: Operational support

Physical targets exceeded: 850 target: 862 completed Overall accreditation status of project schools improved. Grade % at project start to completion is as follows:

Number of schools evaluated (target = 200 schools per year) Basis MOEC assessments, mid term review, ADB missions, school reports

• Proper policy guidance from MOEC

• Qualified DPS staff available

• Effective accreditation and evaluation

24 Appendix 1

Design Summary Output (Actuals) Indicators Assumptions Grade @ start @ finish D 9.4% 1.0% C 17.3% 13.9% B 68.1% 73.1% A 4.9% 12% It should be noted the accreditation system was based on comparison with set criteria representing a "standard" government school. With the merger of the private and public directorates, this system was replaced with a unified system.

conducted regularly

(iv)3. Rationalization of Private School Coverage ($0.5 million) Inputs: Funding for research studies

No computerized school mapping was undertaken by the project as this fell within the domain of a concurrent World Bank project. A school rationalization study was undertaken during the last year of the project. Key conclusions follow:

• National private junior secondary schools are declining in both number and enrollment

• Rates of decline are closely correlated with expansion of government schools, indicating that private

• Detailed school mapping exercise carried out by 1996

• Small school rationalization study conducted in 1997

• Quality of study Basis: MOEC assessments, mid-term review, ADB missions, school reports

• Close coordination between DPS and DSE

• Policy guidance from MOEC

Appendix 1 25

Design Summary Output (Actuals) Indicators Assumptions school closure is caused by competition from expanded government schools.

• School size is a critical determinant of quality and sustainability of private schools.

• Government support to private schools appears haphazard and in most circumstances is confined to periodic rather than routine support.

(iv)4. Strengthening MPS and Yayasan Management ($1.2 million) Inputs: Staff development, specialist services

471 of a target of 480 yayasan and MPS staff were trained. 20 of the target 21 yayasan staff who undertook the course in comparative study of educational finance completed training (1 failed to complete because of family bereavement.) The target of 43 persons for training in educational finance was met. Targets for provision of specialist services (local and international) were 100%

hi d

• Number of persons trained

• Person-months of specialist services on school finance and management

• Assessment of MPS activities before and after training

• Survey of yayasan on financial management of their schools

• Financial statements of project schools to be provided semiannually

Basis: MPS reports, midterm review, MOEC assessments,

• Strong motivation to participate and benefit from project activities

• MPS and yayasan representatives available for training

26 Appendix 1

Design Summary Output (Actuals) Indicators Assumptions achieved.

school reports, and financial records

Total Project Cost: $83.1 million (including contingencies, IDC, and TA cost recovery)

ADB = Asian Development Bank, BME = benefit monitoring and evaluation, DPS = Directorate of Private Schools under DGPSE, DGPSE = Directorate General of Primary and Secondary Education under MOEC, DSE = Directorate of Secondary Education under DGPSE, EBTANAS = national school leaving examination, EMIS = education management information system, ESC = education services contracting, IDC = interest during construction, LEC = local education center, MOEC = Ministry of Education and Culture, MPS = Council of Private School Foundations, NEM = national junior secondary education examination scores, Pesantren = Islamic boarding school, TA = technical assistance.

Appendix 2 27

LOGICAL FRAMEWORK FOR PROJECT’S EXTENSION PERIOD, 2000–2001

Note: The following logical framework records actual performance against original logical framework indicators. In this table the original column headed Assumptions/risks has been replaced with a column recording performance and now headed Performance Against Indicators). Extension Purpose : To promote the long-term sustainability of critical elements of project support through the development of an exit strategy designed to prepare concerned parties for continuing activity after project termination. Goal Expected Composite Impact Indicators Performance Against

Indicators 1. LECs empowered to

serve as in-service teacher training institutions

• LEC staff capable of delivering quality teacher training

• LECs with strong relation with

all satellite schools (private, government, madrasah)

• LECs with capacity to produce composite costs that incorporate overhead element

• LECs with sufficient cash-flow to cover running and development costs

• LECs with capacity to draw up appropriate contracts to cover service provision

• At least two workshop planned and conducted by LEC staff during the extension period

• Map and contact details of satellite schools completed

• Records of LEC staff visits logged, visits of teachers to LEC recorded in visitors book

• Accurate costings that incorporate wider running cost overheads produced

• Independent financial sustainability analysis

• Contracts drawn up and clauses adhered to

Successful master teacher training focusing on course development is completed with co-operation of provincial teacher training colleges. CD-ROMs of training materials of self-support training materials are distributed as follow-up. All LECs have full contact lists of local schools. Record keeping of teacher visits is variable. LEC financial management remains weak. In most instances LEC cash flow remains vulnerable. Training is provided; however, contracting, like financial management, remains weak.

1a. LEC operations • Clarify the aim of LECs and

disseminate clear guidance on what constitutes appropriate LEC activity including setting of

• Development of a clear mission statement and associated LEC charter at participatory workshop (publishing and

Mission statement and charter are produced.

28 Appendix 2

Goal Expected Composite Impact Indicators Performance Against Indicators

LEC activity including setting of appropriate % levels for any cross subsidies derived from business activity on LEC premises, and appropriate allocation of time between educational and noneducational activity on LEC premises

• Strengthen management capacity of LEC staff through three training programs: (i) formal training in business administration for the Director, LEC (ii) formal training in financial administration for LEC finance officers, (iii) training in small business development for 2 selected staff / board members from each LEC

• Reorient LEC management structure and lines of reporting on-line with ongoing decentralization process

• Strengthen the link between LEC and their constituent satellite schools

workshop (publishing and dissemination thereof)

• Three appropriate courses

designed, delivered, and evaluated

• Sample management structure

to be developed at the above workshop-each individual LEC to develop and publish its own structure subsequent to this

• Simple school mapping and

compiling of contract list to be conducted by LEC

• Rationalization of school-based centers based on access and geographic realities

• LEC open days to which principals, education officials and representatives from teacher training institutions are i it d

Courses are delivered successfully, 111 LEC staff are trained. Completed Completed

Undertaken Selective evidence of use – variance between LECs

Appendix 2 29


• Support and institutionalize the process of formal contracting

invited • Contracts drawn up and entered

into 1b. Clarify role and

enhance effectiveness of master teachers

• Clarify the role of the master teachers as both in situ and peripatetic teacher trainers

• Clarify the employment terms and conditions of master teachers

• Define the lines of reporting of master teachers within the LEC and beyond

• Develop practical training program and supporting manual (not subject-specific) to help master teachers adjust to their new role. Areas to cover: concepts of teaching and learning, needs analysis, time management, principles of androgogy and evaluation.

• Provide block grant loans to LEC to enhance the stock of appropriate teacher training books in LEC libraries

• Master teacher job description revised where appropriate

• Specimen contract and sample professional pay structure produced and distributed

• Clear lines of reporting defined within LEC and to district administration

• Training program delivered, manual produced and distributed

• Evaluation conducted, feedback collected and analyzed

• Appropriate books purchased, catalogued, and being used

Job description produced/ school-based approaches are covered in training. Activity is undertaken on an individual LEC basis. The Project secured assurances from DGPSE regarding funding of master teachers on project completion. Recommendations made will be followed up on individual LEC basis. Training program is developed and delivered.

2. Pending activities implemented. Completed activities followed up

• As per original project design • As detailed below by component

30 Appendix 2


2a. Oversee competition of existing activities as listed below:

(i) Renovation of LEC

facilities and grants to school-based centers

(ii) LEC block grants

• Funds allocated • Funds allocated

• Program completed

• Support continued for 1 year

2b. Familiarize DJSE staff with financial reporting procedures and institutionalize system of financial reporting

• Maintain and update project financial and physical performance records

• Transfer digital records onto MOE computer system

• Records updated

• Records transferred to MoE computer

Completed All financial records and spreadsheet formats are handed over on CD-ROM.

2c. Complete principals training program with revised training course

• Complete training for 361 principals from project schools yet to receive training

• Supply revised course and support materials to all project schools

• Training completed • Revised support materials

distributed

Completed

2d. Assist long-term educational planning by completing and disseminating of research study designed to inform education policy and planning

• Conduct school rationalization study into the interplay of factors associated with efficient provision of schools in both public and private sectors (with particular reference to population size and settlement pattern, economies of scale, competition for student and the right of the child to

• Studies completed • Finding published - both in

physical and digital format (internet)

• Dissemination workshops held • Evaluation conducted, feedback

collected and analyzed

Completed Report disseminated Not undertaken—no official web site is available for publication

Appendix 2 31


education)

• Produce accessible report of key finding on school rationalization

• Publish and disseminate findings on paper and on appropriate authorized internet site

2e. Complete transfer of EMIS data and produce web site for LEC

• Oversee transfer of data from DPS to appropriate servers in DJSE and Directorate of Senior Secondary Education

• Link DJSE to the national EMIS

• Data transferred

• EMIS link

Data transferred and new server purchased. EMIS unit still in operation at time of PCR mission Completed

3. Postproject existence for LECs secured

• Broadening of training market beyond private schools secured

• Capacity of staff to fulfill functions secured

• Adequate finance sources identified and funding mechanism explored

• Appropriate guidelines of cross subsidy defined in terms of sharing both time and income

• Letters of commitment from the district administration

• Booking records

• Evaluation sheets from training

• Booking records

• Contract records

Extensive contracts were made with the directorate and district education authorities and local government. No conclusive success can be singled out, however, the dialogue continues and as such there is reason for optimism.

3a. Expand client base

• Strengthen links between LEC and district administration with the aim of exploring possible funding involvement

• Promote the wider use of LEC staff and facilities by clients outside the private school sector, i.e., use by government schools, madrasah schools, for community education etc

• Two-day hosted seminar followed by lobbying by national LEC management consultants and LEC staff

• As above, and with additional lobbying promotion as appropriate

1. Proposals are submitted to the local government by all LEC management with variable levels of success.

2. Successful. A broader client base is evident from usage records

32 Appendix 2


b. Formalize

appropriate relationships for cross-financing activities

community education, etc. Consider joint training programs for private and nonprivate school teachers

• Formalize appropriate cross-financing relationships (in terms of both % subsidies provided and % time utilized)

• Review alternative and complementary utilization scheme for underutilized LEC facilities/dormitories, etc.

• Clearly defined contracts signed between LECs and concerned bodies

• More efficient and economic use of space achieved

usage records. 3 & 4. Success is limited and variable between individual LECs.

EMIS = education management information system, LEC = local education center, PCR = project completion report.

Appendix 3

33

ACHIEVEMENT OF PROJECT TARGETS OR OUTPUTS (% completed)

Target Achievement

Component and Subcomponent

Unit Original Revised Total Percentage

A. Improving Quality and Sustainability

1. Improving Quality of Teaching

a. Training existing teachers

Full-time teachers Person 4,100 4,644 4,426 95

Part-time teachers Person 2,000 2,000 2,001 100

Consultancy on teacher

management

Person-month 12 12 12 100

Consultancy on teacher

upgrading

Person- month 18 18 18 100

b. Seconding new teachers Person-year 3,150 4,500 5,641 100

2. Enhancing Educational Resources

a. Providing instructional materials

Textbooks Set 500 500 780 156

Teachers' guides Set 16,000 -

b. Upgrading libraries

Library renovation/expansion Room 270 436 891 204

Reference materials Set 400 412 400 97

Training teacher-librarians Teacher 400 400 833 208

c. Upgrading laboratories

Science laboratory renovation or

expansion

Room 430 488 488 100

Science kits Set 470 470 609 130

Training laboratory technicians Technician 470 470 1,028 219

d. Establishing local education centers

LEC building Building 12 12 12 100

Furniture Set 12 12 12 100

Equipment and other facilities Set 12 12 36 300

Consulting Services Lot 12 23 22 96

Training master teachers Person-years 72 104 103 99

Financial and management

training

Person 26 26 100

Management business

administration for LEC staff

Person 39 39 100

Management business Person 39 46 118

Appendix 3

34

Target Achievement Component and Subcomponent


development for LEC staff

Hospitality training

(in-service provision and income

generation)

Person 26 26 100

Consultancy on learning

Resources operation


Consultancy on model schools

Development and operation


LEC meetings and workshops Seminar 9 6 67

e. LEC refurbishment Unit 23 23 100

Furniture Set 12 12 100

Equipment and other facilities Set 12 12 100

Renovation of building Set 12 12 100

3. Strengthening School Management

a. Training of school principals Person 500 974 1,095 112

b. Training of administrative/finance

officers

Person 600 678 1,138 168

c. Consultancy on school

administration



B. Enhancing JSE Access for Disadvantaged Groups

1. Education services contracting in depressed areas

Grant-in-Aid (GIA) to poor students Pupil-year 27,000 62,520 67,991 109

Provision of bicycles Unit 2,000 2,000 2,000 100

Consultancy on education services

contracts


2. Education Services Contracting in Low-Income Urban Areas

GIA to poor students of regular

JSE schools

Pupil-year 54,000 145,539 29,138 20%

GIA to poor students of Pesantren

with JSE programs

Pupil-year 9,000 25,957 13,072 50%

C. Upgrading Private JSE Schools and Pesantrens in Depressed Rural Areas

Secondment of teachers Person-year 690 950 993 105

Teacher training Person 1,000 1,000 1,000 100

Training of teacher librarians Person 60 60 121 202

Training of laboratory technicians Person 60 60 125 210

Appendix 3

35



Textbooks Set 18,000 18,000 46,475 260

Teachers' guides Set 1,500 - - -

Libraries Lot 50 62 112 181

Reference materials Set 50 50 50 100

Laboratories Lot 60 69 69 100

Science kits Set 60 60 67 100

D. Institutional Strengthening

1. Strengthening Directorate of Private Schools:

Provincial/District

a. Staff development

Masters degree in education

planning

Student-month 660 660 438 66

Comparative study on education

finance

Person 21 21 20 95

Short-term training on school

finance

Person 43 43 43 100

Short-term training on

management

Person 26 0 0

b. EMIS development

Consultancy on systems

development



Equipment and facilities 17 17 17 100

Establishment of databank 68 68 68 100

EMIS 26 26 24 94

Training of EMIS staff 36 36 34 94

2. Strengthening the Accreditation Process

Operational support School 850 850 852 101

3. Rationalization of Private School Expansion

School mapping 1 1 1 100

Study on consolidation of small schools 1 1 1 100

4. Strengthening the BMPS/Yayasan Management

Management training Person 480 480 471 98

Comparative study visit Person 28 28 28 100

Consultancy on finance and

school management



Appendix 3

36



E. Project Implementation Support

1. School Quality Upgrading

Consulting services on

operation and management


Person-month 180 180 180 100

2. Project Implementation

Socialization of project Seminar 17 17 17 100%

Inception seminar workshop Lot 55 55 55 100%

Social awareness campaign Lot 5 5 5 100%

LEC campaign Person 18 18 16 89%

Management training Lot 12 12 12 100%

Facilities and equipment Person-month 36 45 45 100%

Consultancy on financial and project management

Person-month 180 275 252 92%

3. Monitoring and Evaluation

Consulting services on PBME Person-month 9 13 13 100


Periodic surveys Lot 5 9 9 100

Midterm review consultancy

services

Lot 1 1 1 100

4. Recurrent Expenditures

Project implementation unit and

provincial project implementation

unit operations

Lot 5 6 6 100

operation and management of

project facilities

Percentage Average 116% EMIS = education management information system, GIA = Grant-in-Aid, LEC = local education center.

Appendix 5 37

Appendix 4

COST BREAKDOWN BY PROJECT COMPONENT ($ million)

Appraisal Actual Total Project Cost ADB GOI Private

Sector ADB GOI Private

Sector Total Cost

Component

FX LC Total FX LC Total LC LC FX LC Total LC LC FX LC Total A. Teacher Secondment 0.00 6.75 6.75 0.00 0.00 0.00 6.75 0.00 0.00 0.11 0.11 0.47 0.00 0.00 0.58 0.58

B. Teacher and Staff Development 1. In-Country 0.00 15.29 15.29 0.00 15.29 15.29 0.00 0.00 0.00 10.55 10.55 6.28 0.00 0.00 16.83 16.83 2. Overseas 2.00 0.20 2.20 2.00 0.20 2.20 0.00 0.00 2.06 0.00 2.06 0.00 0.00 2.06 0.00 2.06

Subtotal 2.00 15.50 17.49 2.00 15.50 17.49 0.00 0.00 2.06 10.55 12.60 6.28 0.00 2.06 16.83 18.88

C. Instructional Materials 7.60 3.80 11.40 7.60 3.80 11.40 0.00 0.00 5.23 0.00 5.23 0.00 0.00 5.23 0.00 5.23

D. Consulting Services 1. International 2.98 0.00 2.98 2.98 0.00 2.98 0.00 0.00 5.24 0.00 5.24 0.00 0.00 5.24 0.00 5.24 2. Domestic 0.00 3.25 3.25 0.00 3.25 3.25 0.00 0.00 0.00 0.00 0.00 0.49 0.00 0.00 0.49 0.49

Subtotal 2.98 3.25 6.23 2.98 3.25 6.23 0.00 0.00 5.24 0.00 5.24 0.49 0.00 5.24 0.49 5.72

E. Studies 0.00 0.58 0.58 0.00 0.58 0.58 0.00 0.00 0.00 0.38 0.38 2.54 0.00 0.00 2.91 2.91

F. Civil Works 1.37 3.97 5.34 1.37 0.00 1.37 3.97 0.00 0.68 0.00 0.68 1.54 0.00 0.68 1.54 2.22

G. Consulting Services 1. Furniture 0.25 0.55 0.80 0.25 0.00 0.25 0.55 0.00 0.14 0.00 0.14 0.02 0.00 0.14 0.02 0.16 2. Equipment 1.80 0.26 2.06 1.80 0.26 2.06 0.00 0.00 0.79 0.00 0.79 0.00 0.00 0.79 0.00 0.79

Subtotal 2.06 0.81 2.86 2.06 0.26 2.32 0.55 0.00 0.92 0.00 0.92 0.02 0.00 0.92 0.02 0.95

H. Special Programs 1. Assistance Scheme for Facilities Improvement

1.40 8.79 10.19 1.40 0.00 1.40 5.71 3.08 1.76 0.00 1.76 0.49 2.08 1.76 2.57 4.33

2. Education Services Contracting

7.40 0.00 0.00 7.40 7.40

- Depressed Rural Areas

0.12 2.25 2.37 0.12 0.00 0.12 2.25 0.00 0.18 0.00 0.18 0.00 0.00 0.18 0.00 0.18

- Low-Income Urban Areas

0.00 5.05 5.05 0.00 0.00 0.00 5.05 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00

Subtotal 1.52 16.08 17.60 1.52 0.00 1.52 13.01 3.08 1.94 0.00 1.94 7.89 2.08 1.94 9.97 11.91

I. Project Implementation 1. CPIU and PPIUs

- Capital Costs 0.32 0.15 0.46 0.32 0.00 0.32 0.15 0.00 0.17 0.00 0.17 0.27 0.00 0.17 0.27 0.44 - Recurrent Costs 0.00 2.24 2.24 0.00 0.00 0.00 2.24 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00

2. O&M of Project Facilities

0.00 1.84 1.84 0.00 0.00 0.00 0.00 1.84 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00

Subtotal 0.32 4.22 4.54 0.32 0.00 0.32 2.38 1.84 0.17 0.00 0.17 0.27 0.00 0.17 0.27 0.44

J. Taxes and Duties 0.00 2.54 2.54 0.00 0.00 0.00 2.54 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00

K. Interest During Construction

7.52 0.00 7.52 7.52 0.00 7.52 0.00 0.00 6.16 0.00 6.16 0.00 0.00 6.16 0.00 6.16

L. TA Cost Recovery 0.27 0.00 0.27 0.27 0.00 0.27 0.00 0.00 0.17 0.00 0.17 0.00 0.00 0.17 0.00 0.17 Total 25.62 57.47 83.10 25.62 23.38 49.00 29.19 4.91 22.57 11.03 33.61 19.49 2.08 22.57 32.60 55.17

34% 61% 35% 4% 41% 59% 100%

ADB = Asian Development Bank, CPIU = central project implementation unit, FX = foreign exchange, GOI = Government of Indonesia, LC = local currency, O&M = operation and maintenance, PPIU = provincial project implementation unit. Note: Figures may not add up to total because of rounding. Source: ADB estimates.

38 Appendix 5

ACTUAL IMPLEMENTATION SCHEDULE

Year and Quarter of Implementation 1995 1996/97 1997/98 1998/99 1999/2000 2000 2001 2002

Inputs

3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 Teacher Secondment

Preparatory activity

Actual activity

Teacher and Staff Development In-country

Overseas

Instructional Materials Tendering and contract awards

Delivery

Specialist Services Preparation of long list

Preparation of short list

Preparation of evaluation criteria

Finalization of invitation letters

Contract award

Actual activity

Studies School mapping

Consolidation of small schools

Facilities Development Work schedules prepared

Materials schedule

Appendix 5 39

Appendix 4

Year and Quarter of Implementation 1995 1996/97 1997/98 1998/99 1999/2000 2000 2001 2002

Inputs

3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 Tendering and contract awards

Actual activity

Furniture and Equipment Inventory of equipment

Tendering and contract awards

Delivery

Special Programs Assistance scheme for facilities improvement

Education services contracting (depressed areas)

Education services contracting (nondepressed areas)

Preparatory activity

Actual activity

Evaluation

Project Implementation and Management

Selection of project implementation staff

Socialization of the Project

Training for project implementation staff

Benefit monitoring and evaluation periodic surveys

Midterm review

Project completion report

= planned = actual

Appendix 5

Appendix 6

40

STATUS OF COMPLIANCE WITH LOAN COVENANTS

Covenant Reference in Loan Agreement

Status of Compliance

1. The Borrower will cause the Project to be

carried out with due diligence and efficiency and in conformity with sound administrative, financial, engineering, environmental, and educational practices

Section 4.01(a)

Complied with in general, but with required improvement in administrative and financial record administration

2. In carrying out the Project and operation of project facilities, the Borrower will perform, or cause to be performed, all obligations set forth in Schedule 6 of the Loan Agreement.

Section 4.01(b) Complied with

3. The Borrower will make available or cause to be made available, promptly as needed, the funds, facilities, services, land, and other resources that are required, in addition to the proceeds of the Loan, for carrying out the Project and for operation and maintenance of the project facilities.

Section 4.02

Complied with

4. In carrying out the Project, the Borrower will cause competent and qualified consultants and contractors, acceptable to the Borrower and ADB, to be employed to an extent and upon terms and conditions satisfactory to the Borrower and ADB.

Section 4.03(a)

Complied with, although there was a 17-month delay in recruitment and fielding of consultants

5. The Borrower will cause the Project to be carried out in accordance with plans, design standards, specifications, work schedules and construction methods acceptable to the Borrower and ADB. The Borrower will furnish, or cause to be furnished, to ADB, promptly after their preparation, such plans, design standards, specifications and work schedules, and any material modifications subsequently made therein, in such detail as ADB reasonably requests.

Section 4.03(b)

Complied with. However, in 1998/99, the scholarships were continued by the PPIUs against the instructions of ADB.

6. The Borrower will ensure that the activities of its departments and agencies with respect to the carrying out of the Project and operation of the project facilities are conducted and coordinated in accordance with sound administrative policies and procedures.

Section 4.04

Complied with. However, decentralization of junior secondary education at district level and amalgamation of the Directorate of Private Junior Secondary Education had a negative impact on the Project.

Appendix 6

41



7. The Borrower will make arrangements satisfactory to ADB for insurance of the project facilities to such extent and against such risks and in such amounts as will be consistent with sound practice.

Section 4.05(a)

Complied with

8. The Borrower will undertake to insure, or cause to be insured, the goods to be imported for the Project and to be financed out of the proceeds of the Loan against hazards incident to the acquisition, transportation, and delivery thereof to the place of use or installation, and for such insurance any indemnity will be payable in a currency freely usable to replace or repair such goods.

Section 4.05(b)

Complied with

9. The Borrower will maintain, or cause to be maintained, records and accounts adequate to identify the goods and services and other items of expenditure financed out of the proceeds of the Loan, to disclose the use thereof in the Project, to record the progress of the Project (including the cost thereof) and to reflect, in accordance with consistently maintained sound accounting principles, the operations and financial condition of the agencies of the Borrower, and the private SMPs and pesantrens receiving assistance under the Project, which are responsible for carrying out the Project and operation of the project facilities, or any part thereof.

10. The Borrower will (i) maintain, or cause to be

maintained, separate accounts for the Project; (ii) have such accounts and related financial statements audited annually, in accordance with appropriate auditing standards consistently applied, by independent auditors whose qualifications, experience and terms of reference are acceptable to ADB; (iii) furnish to ADB, as soon as available but in any event not later than 9 months after the end of each related fiscal year, certified copies of such audited accounts and financial statements and the report of the auditors relating thereto (including the auditors’ opinion on the use of the Loan proceeds and compliance with the covenants of the Loan Agreement), all in the English language; and (iv) furnish to ADB such other information concerning such accounts and financial statements and the audit thereof as ADB will from time to time reasonably requests.

Section 4.06(a) Section 4.06(b)

Partly complied with. Records management has not been effective. Complied with

Appendix 6

42



11. The Borrower will enable ADB, on ADB’s

request, to discuss the Borrower’s financial statements for the project and its financial affairs related to the Project from time to time with the Borrower’s auditors, and will authorize and require any representative of such auditors to participate in any such discussions requested by ADB, provided that any such discussion will be conducted only in the presence of an authorized officer of the Borrower unless the Borrower otherwise agrees.

Section 4.06(c)

Complied with

12. The Borrower will furnish, or cause to be furnished, to ADB all such reports and information as ADB reasonably requests concerning (i) the Loan, and the expenditure of the proceeds and maintenance of the service thereof; (ii) the goods and services and other items of expenditure financed out of the proceeds of the Loan; (iii) the Project; (iv) the administration, operation and financial condition of the agencies of the Borrower, and the private SMPs and pesantrens receiving assistance under the Project, which are responsible for carrying out the Project and operation of the Project facilities, or any part thereof; (v) financial and economic conditions in the territory of the Borrower and the international balance-of-payments position of the Borrower ; and (vi) any other matters relating to the purposes of the Loan.

Section 4.07(a)

Complied with. During project implementation, records management is considered satisfactory. However, the PCR Mission has experienced considerable difficulty in getting data because of poor records management.

13. The Borrower will furnish, or cause to be furnished, to ADB quarterly reports on the carrying out of the Project and on the operation and management of the project facilities. Such reports will be submitted by DGPSE, through the CPIU, in such form and in such detail and within such a period as ADB reasonably requests, and will indicate, among other things, progress made and problems encountered during the quarter under review, steps taken or proposed to be taken to remedy these problems, and the proposed program of activities and expected progress during the following quarter.

Section 4.07(b)

Complied with

Appendix 6

43



14. Promptly after physical completion of the

Project, but in any event not later than 3 months, thereafter, or at such later date as may be agreed upon for this purpose between the Borrower and ADB, the Borrower will ensure that DGPSE, through the CPIU, prepares and furnishes to ADB a report, in such form and in such detail as ADB reasonably requests, on the execution and initial operation of the Project, including its cost, the performance by the Borrower of its obligations under this Loan Agreement, and the accomplishment of the purposes of the Loan.

Section 4.07(c)

Complied with but with delay. The Government PCR was received more than 1 year after Project completion.

15. The Borrower will enable ADB’s representatives to inspect the project, the goods financed out of the proceeds of the Loan, and any relevant records and documents.

Section 4.08 Complied with

16. The Borrower will ensure that the project facilities are operated, maintained, and repaired in accordance with sound administrative, financial, engineering, environmental, educational, and maintenance and operation practices.

Section 4.09 Complied with. However, some schools visited have not been able to maintain the science laboratories, which now require some rehabilitation.

17. It is the mutual intention of the Borrower and ADB that no other external debt owed a creditor other than ADB will have any priority over the Loan by way of a lien on the assets of the Borrower. To that end, the Borrower undertakes (i) that, except as ADB may otherwise agree, if any lien will be created on any assets of the Borrower as security for any external debt, such lien will ipso facto equally and ratably secure the payment of the principal of, and interest and other charges on, the Loan; and (ii) that the Borrower, in creating or permitting the creation of any such lien, will make express provision to that effect.

Section 4.10(a) Complied with

18. The provisions of Section 4.10(a) will not apply to (i) any lien created on property, at the time of purchase thereof, solely as security for payment of the purchase price of such property; or (ii) any lien arising in the ordinary course of banking transactions and securing a debt maturing not more than 1 year after this date.

Section 4.10(b) Complied with

Appendix 6

44



19. DGPSE will be responsible for the overall

execution of the Project and for policy-level coordination as the project Executing Agency. DPS will be responsible for coordination and implementation of project activities.

Schedule 6, para. 1

Complied with. DGPSE was reorganized in 2000 with the decentralization of the education management to districts. The directorate of private JSE schools was merged with the directorate of government JSE schools under the Directorate General for Primary and Secondary Education. MOEC was also changed to Ministry of National Education (MONE).

20. Within 3 months after the effective date, a project steering committee (PSC) will be established by DGPSE. The PSC will be chaired by the director-general, DGPSE. The director, DPS will be the secretary of the PSC. The other members of the PSC will include representatives of BAPPENAS, MOF, MOHA, MORA, DPS, BALITBANG and other offices of MOEC as appropriate, and the MPS. The PSC will be responsible for coordination of the Project and other related projects assisted by ADB and other agencies. The PSC will also monitor progress and problems in project implementation. The PSC will meet at least once every 6 months and as required.

Schedule 6, para. 2

Complied with

21. Within 1 month after the effective date, DGPSE will appoint a full-time project manager, acceptable to ADB, who will be responsible for managing the day-to-day implementation activities of the Project.

Schedule 6, para. 3

Complied with

22. Within 1 month after the effective date, the Borrower will establish a central project implementation unit (CPIU) within DPS to implement project activities at the national level and to coordinate the activities of the PPIUs, including administration of the local and overseas training programs provided under the Project. The CPIU will be headed by a project manager and will be supported by an adequate number of appropriately trained technical and clerical staff. The Borrower will ensure that a representative from MORA is included in the deliberations of the CPIU on matters relating to project activities concerning pesantrens.

Schedule 6, para. 4

Complied with. Within 2 months of loan effectiveness, the CPIU was fully staffed.

Appendix 6

45



23. Within 2 months after the effective date, the

Borrower will establish a provincial project implementation unit (PPIU) in each project province to implement project activities at the provincial level. The PPIUs will report to the CPIU regularly. The PPIUs will consult with the provincial advisory committees established under the Project and cooperate with the local project coordinators from the district level offices of MOEC. Each PPIU will be supported by an adequate number of appropriately trained technical and clerical staff. The Borrower will ensure that a representative from MORA is included in the deliberations of each PPIU on matters relating to project activities concerning pesantrens.

Schedule 6, para. 5

Complied with, with delay. The PPIUs were fully staffed more than 6 months thereafter.

24. Within 3 months after the effective date, the Borrower will establish a provincial advisory committee (PAC) in each Project province to provide a channel of communication between the Project staff in the PPIU and the local communities. The PAC will be chaired by the head of the provincial office of MOEC and its other members will include the heads of the district offices of MOEC or their designates, and representatives of the provincial level. The PAC will be responsible for coordination of project activities, including the special programs provided under the Project, at the provincial level, and provide guidance to the district offices of MOEC on project implementation activities.

Schedule 6, para. 6

Complied with

25. Within 3 months after the effective date, the Borrower will establish a district advisory committee (DAC) in each district within the project area to provide a channel of communication between project staff in the PPIU and the local communities. Each DAC will be chaired by the head of the district office of MOEC and its other members will include the local project coordinator from the district office of MOEC concerned, and representatives from MPS at the district level, and the yayasan concerned. The DAC will be responsible for providing operational guidance to the local project coordinators on the day-to-day implementation of project activities.

Schedule 6, para. 7

Partly complied with. Coordination among DAC, PPIU, and the local communities was weak.

Appendix 6

46



26. In planning public JSE expansion, the

Borrower will take into account the need to ensure the viability of private SMPs and give priority to areas that are not served by viable private SMPs. To this end, the Borrower will ensure that DGSE will establish, within 6 months after the effective date, appropriate coordination and monitoring mechanisms at the national, provincial, and district levels with representatives from BAPPENAS, MPS, and other agencies concerned to ensure that the roles and interests of private SMPs are reflected in the planning process for public SMP expansion.

Schedule 6, para. 8

Partly complied with. The project private SLTPs are suffering from declining enrollment due to continued competition with government schools, arising from new schools, classrooms, and oversize classes. District education offices informed the PCR Mission that the Government will enforce the standard of 40 students per classroom, which would necessitate transfers of some students to private SLTPs.

27. The Borrower will support the sustainability of private SMPs through introduction of a transparent and predictable mechanism to allocate budgetary resources and assistance in kind on a timely basis. This mechanism will be based on eligibility criteria relating to (i) potential for expansion (indicators will include school location, existing student enrollment levels, and JSE student catchment area); (ii) good management (indicators will include full-time principals and teachers, well-maintained facilities and premises, and adequate administrative and financial records); and (iii) willingness of the local community served by the private SMP to actively participate in project activities.

Schedule 6, para. 9

Complied with. The Government has been providing assistance to the private SLTPs through payment of seconded teachers and provision of new classrooms. However, there are no transparent criteria in providing the support. Assistance should be based on needs assessment of schools, rather than ad hoc, to have better impact.

28. The Borrower will continue to provide assistance to private SMPs in DTs assisted under the project after the Project is completed until the viability of such SMPs is ensured or until education opportunities are provided through the expansion of the public SMP system.

Schedule 6, para. 10

Complied with. Seconded teachers are still on the Government payroll. However, a decree was passed that retiring seconded teachers will no longer be replaced. This will cause tremendous financial burden to the private SLTPs.

29. The Borrower will ensure that all private SMPs and pesantrens receiving assistance under the Project maintain adequate financial and administrative records, and provide consolidated financial statements to the PPIUs on a semiannual basis during project implementation. The Borrower will ensure that the PPIUs in turn provide these statements to the CPIU.


Not complied with. Financial records for schools rest with the yayasan, and not the school.

Appendix 6

47



30. DGPS will carry out the Assistance Scheme for Facilities Improvement through the CPIU and PPIUs in accordance with arrangements acceptable to ADB. These arrangements will in particular include eligibility criteria agreed upon between the Borrower and ADB. Transparent procedures in the selection of schools applying for assistance under this scheme provide quarterly reports during project implementation on the status of project implementation and the manner of utilization of funds to carry out this scheme.


Complied with

31. DGPSE will carry out the education services contracting (ESC) programs through the CPIU and PPIUs in accordance with arrangements acceptable to ADB. These arrangements will in particular include eligibility criteria agreed upon between the Borrower and ADB and transparent procedures in the selection of recipients under this program. To this end, the PPIUs will be responsible for setting up an ESC committee in each school assisted under the Project.


Complied with

32. Each ESC committee will consist of the school principal, a representative of the parent-teacher association of the school, and the yayasan concerned. The ESC committee will include a PPIU representative, when required, to participate in its deliberations.

Schedule 6, para. 14(a)

Complied with

33. The Borrower will try to ensure that all eligible students as determined by the ESC committee are provided with assistance under the ESC programs. The Borrower will give priority to female students eligible for assistance under the ESC programs, and will achieve at least an overall female:male ratio of 60:40 among the assisted students.

34. Within 6 months after the effective date,

DGPSE will submit to ADB for its approval a plan for training activities to be carried out under the Project. The plan will include the objectives of and criteria for selection of candidates for training, each staff development activity, subject areas of training, and venues of training. The CPIU will establish guidelines for the nomination of both public and private sector candidates by the PPIUs from their respective areas and for the administration of their approved fellowships.

Schedule 6, para. 14(b) Schedule 6, para. 15(a)

Complied with. Sixty percent of the scholarships were given to girls. Complied with.

Appendix 6

48



35. DGPSE will ensure that the recipients of overseas training will continue their services with the Project or in a capacity relevant to their training for a reasonable period of time after completion of such training.

Schedule 6, para. 15(b)

Complied with

36. The Borrower will ensure that measures acceptable to ADB are adopted to increase the number of places allocated to females in the private education system for staff and teacher training during project implementation.

Schedule 6, para. 15 (c)

Complied with

37. Within 6 months after the effective date, the Borrower will submit to ADB guidelines satisfactory to ADB relating to (i) management, operation, and maintenance of the LECs to be constructed under the Project, including financial arrangements, cost sharing and allocation, mechanisms for payment, collection, accounting, and audit of funds by the yayasans involved; and (ii) overall supervision by DGPSE.


Complied with

38. The Borrower will continue to second suitably qualified teachers in a timely manner to private SMPs during project implementation, and as required after project implementation to ensure the viability of such SMPs. Within 6 months after the effective date, the Borrower will provide ADB with an action plan acceptable to ADB relating to secondment of qualified teachers under the Project.


Complied with. Seconded teachers are still on the Government payroll after project completion.

39. The Borrower will provide necessary budget allocations to meet the incremental recurrent costs of the Project, both during and after project implementation.

40. Within 6 months after the effective date,

DGPSE will, in consultation with BALITBANG, establish a benefit monitoring and evaluation (BME) system in accordance with the provisions of ADB’s Handbook for Benefit Monitoring and Evaluation. Such BME system will be subject to the approval of ADB. During project implementation, DGPSE will periodically compare actual and projected performance to baseline and target indicators, and recommend measures for immediate corrective action.

Schedule 6, para. 18 Schedule 6, para. 19

Complied with. However, due to the economic crisis, the coverage of loan proceeds was expanded to cover expenditures for LEC, school block grants, and seconded teachers. Complied with, with delay. Fielding of BME consultants was delayed by almost two years. As such, the baseline data were not available during the start of project implementation.

Appendix 6

49



41. DGPSE will evaluate the benefits of the Project

after the Project has been completed in accordance with a schedule and terms of reference to be agreed upon by DGPSE and ADB.


Complied with

42. A midterm review of all aspects of the Project will be carried out by the Borrower and ADB in the third year of project implementation, or at any other time as may be agreed upon by the parties, to assess the Project’s progress and achievements against its objectives as well as to identify any problems encountered and to recommend remedial measures, if required.


Complied with. The Midterm Review Mission was carried out in 1999, fourth year of project implementation.

Appendix 7

50

PROJECT IMPACT ON EXAMINATION PERFORMANCE AND ENROLLMENTS

Table A7.1: Trends in Examination Performance in Project Schools, by Province, SY1997/98–SY2001/02

Item West Java South Kalimantan

Lampung East Java

South Sulawesi Total

No. of students, SY1997/98 29,618 2,389 12,709 13,070 9,034 66,820 No. of students, SY2001/02 24,311 1,833 11,230 13,407 9,174 59,955 No. of schools 324 35 181 151 164 855 Change in average score SY1997/98–2001/02 0.5 0.4 0.3 (0.2) (0.1) 0.2 SY = school year.

Table A7.2: Change in Average Examination Performance by School Subject (%), SY1997/98–SY2001/02

Item West Java South Kalimantan

Lampung East

Java

South Sulawesi

Average Change

(%) Science 1.2 1.00 0.9 0.6 0.2 17.2 English 0.6 0.7 1.2 (0.2) (0.1) 8.6 Mathematics 0.1 0.5 1.2 (0.5) 0.9 7.4 Civic Education 0.5 0.3 (0.4) 0.2 (0.7) 0.3 Indonesian 0.4 0.1 (0.4) (0.4) (1.1) (3.7) Social Studies (0.1) (0.2) 0.1 (0.9) 0.0 (3.7) SY = school year.

Table A7.3: Project Schools with Increasing Enrollments, SY1995/96–SY2002/03

Item West Java

Lampung South Sulawesi

South Kalimantan

East Javaa

Totalb

Total schools in sample 131 152 100 14 154 551

Schools recording increased enrollments (no.)

69 75 47 4 32 227

Schools recording increased enrollments (%) 53 49 47 36 21 41

SY = school year. a Data is for SY1996/97. b Paired data was not available for all schools.

Table A7.4: Change in Enrollment in Project Schools, SY1995/96–SY2002/03 Item West Java Lampung South

Sulawesi South

Kalimantan East

Javaa

Totalb

Total schools in sample 131 152 100 14 154 551 Enrolment, SY1995/96 37,170 2,709 20,690 34,642 42,532 137,743 Enrolment, SY2002/03 39,113 1,823 19,509 33,372 29,361 123,178 Change in enrollment, SY1995/95––2002/03 (%) 5.2 (32.7) (5.7) (3.7) (31.0) (10.6) SY = school year. a Data is for SY1996/97. b Paired data was not available for all schools. Source for all tables: Tables calculated from raw school and examination data from the EMIS.

Appendix 8

51

PROJECT PERFORMANCE RATING ASSESSMENT

(Rating values: 0 = low; 3 = maximum) Criterion

(a) Weight (%)

(b) Assessment

(c) Rating Value

(d)

Weighted Rating

(b) x (d)

Comments

A. Project Outcome Assessment 1. Relevance 20 Relevant 3 0.60 The Project was relevant because it

correctly targeted the most disadvantaged sections of the population and, in assisting the private education sector, was supportive of Government and ADB policies to achieve universal basic education.

2. Efficacy 25 Efficacious 2 0.50 The Project improved academic performance, allowing more students to continue their education beyond JSE. But the financial crisis and continuing poor economic climate made it difficult to achieve increased enrollments, especially in small schools. Forty two percent of project schools recorded enrollment increases. The provided resources enhanced the potential of project schools to deliver good quality education, especially in the larger schools.

3. Efficiency 20 Partly efficient

2 0.40 The Project has delivered and often exceeded targets to specified time frames. The Project contributed to improvements in internal efficiency and increased transition rates to senior secondary education.

B. Sustainability 20 Limited

sustainability 1 0.20 The Government has been

unsuccessful in regulating public and private JSE growth to achieve complementarity, at the expense of private schools. The Project raised awareness of private sector issues within the Government and there is now a commitment to helping private schools achieve the national minimum learning conditions.

C. Institutional Development 15 Successful 2 0.30 The Project contributed to human

resource and institutional development in schools, private school foundations, and MOEC’s provincial and district education administrations.

Total 2.0 The Project is rated successful in accordance with the scoring criteria detailed in the note.

ADB = Asian Development Bank, JSE = junior secondary education, MOEC = Ministry of Education and Culture. Note: Weighted rating is determined as follows:

Highly successful = overall weighted average (OWA) > 2.5 and no criterion less than 2 Successful = OWA 1.6-2.5 and no criterion less than 1 Less than successful = OWA 0.6-1.6 and no criterion less than 1 Unsuccessful = OWA < less than 0.6

52 Appendix 9

NATIONAL ENROLLMENT STATISTICS INDICATING FLOWS INTO AND OUT OF JUNIOR SECONDARY EDUCATION, AND BETWEEN JSE SUBSECTORS SY1995/96—SY2001/02

Table A9.1: Primary Education, Grade 6 (Final Primary Year)

Number of Students Annual Growth Rates MONE Schools Madrasah MONE Schools Madrasah

School Year Gov't Private Gov't Private Total Gov't Private Gov't Private Total 1995/96 3,466,625 272,736 29,512 472,033 4,240,906 1996/97 3,477,095 275,039 31,375 467,690 4,251,199 0.30 0.84 6.31 (0.92) 0.24 1997/98 3,492,353 270,739 31,470 482,194 4,276,756 0.43 (1.56) 0.30 3.10 0.60 1998/99 3,468,882 266,266 31,896 485,169 4,252,213 (0.67) (1.65) 1.35 0.61 (0.57) 1999/00 3,424,693 269,204 41,205 374,681 4,109,783 (1.27) 1.10 29.18 (22.77) (3.34) 2000/01 3,417,499 267,182 43,447 386,069 4,114,197 (0.21) (0.75) 5.44 3.03 0.10 2001/02 3,493,693 259,154 44,310 402,174 4,199,331 2.22 (3.00) 1.98 4.17 2.06 Gain or (loss) 27,068 (13,582) 14,798 (69,859) (41,575) – – – – – 6-year growth rate

– – – – – 0.78 (4.97) 50.14 (14.79) (0.98)

Table A9.2: Junior Secondary Education, Year 1

Number of Students Annual Growth Rates MONE Schools Madrasah MONE Schools Madrasah School Year

Gov't Private Gov't Private Total Gov't Private Gov't Private Total

1995/96 1,738,797 825,080 129,629 392,670 3,086,176 1996/97 1,886,111 887,207 151,090 460,360 3,384,768 8.47 7.53 16.56 17.24 9.68 1997/98 1,791,309 791,731 156,271 480,722 3,220,033 (5.03) (10.76) 3.43 4.42 (4.87) 1998/99 1,806,432 765,115 153,795 482,415 3,207,757 0.84 (3.36) (1.58) 0.35 (0.38) 1999/00 1,870,811 736,100 179,710 470,401 3,257,022 3.56 (3.79) 16.85 (2.49) 1.54 2000/01 1,905,178 712,056 181,713 493,885 3,292,832 1.84 (3.27) 1.11 4.99 1.10 2001/02 1,891,155 665,198 189,131 482,448 3,227,932 (0.74) (6.58) 4.08 (2.32) (1.97) Gain or (loss) 152,358 (159,882) 59,502 89,778 141,756 – – – – – 6-year growth rate

– – – – – 8.76 (19.38) 45.90 22.86 4.59

Appendix 9 53

Table A9.3: Junior Secondary, Year 2 Number of Students Annual Growth Rates

MONE Schools Madrasah MONE Schools Madrasah School Year Gov't Private Gov't Private

Total Gov't Private Gov't Private

Total

1995/96 1,567,406 746,058 120,360 376,809 2,810,633 1996/97 1,665,869 857,158 140,280 441,760 3,105,067 6.28 14.89 16.55 17.23 10.47 1997/98 1,767,023 837,061 145,090 461,300 3,210,474 6.07 (2.34) 3.42 4.42 3.39 1998/99 1,761,309 760,315 142,792 462,925 3,127,341 (0.32) (9.16) (1.58) 0.35 (2.58) 1999/00 1,791,936 727,187 166,853 451,397 3,137,373 1.73 (4.35) 16.85 (2.49) 0.32 2000/01 1,824,061 699,872 168,712 473,932 3,166,577 1.79 (3.75) 1.11 4.99 0.93 2001/02 1,839,566 659,589 175,559 480,953 3,155,667 0.85 (5.75) 4.05 1.48 (0.34) Gain or (loss) 272,160 (86,469) 55,199 104,144 345,034 – – – – – 6-year growth rate

– – – – – 17.36 (11.59) 45.86 27.63 12.27

Table A9.4: Junior Secondary, Year 3 (Final Junior Secondary Year) Number of Students Annual Growth Rates



Total

1995/96 1,567,406 746,058 104,829 333,441 2,751,734 1996/97 1,665,869 857,158 122,185 390,916 3,036,128 6.28 14.89 16.55 17.23 10.33 1997/98 1,767,023 837,061 126,374 408,207 3,138,665 6.07 (2.34) 3.42 4.42 3.37 1998/99 1,690,719 780,738 124,372 409,645 3,005,474 (4.31) (6.72) (1.58) 0.35 (4.24) 1999/00 1,729,425 744,634 145,330 399,444 3,018,833 2.28 (4.62) 16.85 (2.49) 0.44 2000/01 1,736,228 707,312 146,949 419,385 3,009,874 0.39 (5.01) 1.11 4.99 (0.29) 2001/02 1,762,903 648,047 152,948 480,432 3,044,330 1.53 (8.37) 4.08 14.55 1.14 Gain or (loss) 195,497 (98,011) 48,119 146,991 292,596 – – – – – 6-year growth rate

– – – – – 12.47 (13.13) 45.90 44.08 10.63

54 Appendix 9

Table A9.5: Total Junior Secondary Number of Students Annual Growth Rates



Total

1995/96 4,873,609 2,317,196 354,818 1,102,920 8,648,543 1996/97 5,217,849 2,601,523 413,555 1,293,036 9,525,963 7.06 12.27 16.55 17.23 10.14 1997/98 5,325,355 2,465,853 427,735 1,350,229 9,569,172 2.06 (5.21) 3.42 4.42 0.45 1998/99 5,258,460 2,306,168 420,959 1,354,985 9,340,572 (1.25) (6.47) (1.58) 0.35 (2.38) 1999/00 5,392,172 2,207,921 491,893 1,321,242 9,413,228 2.54 (4.26) 16.85 (2.49) 0.77 2000/01 5,465,467 2,119,240 497,374 1,387,202 9,469,283 1.35 (4.01) 1.11 4.99 0.59 2001/02 5,493,624 1,972,834 517,638 1,443,833 9,427,929 0.51 (6.90) 4.07 4.08 (0.43) Gain or (loss) 620,015 (344,362) 162,820 340,913 779,386 – – – – – 6-year growth rate

– – – – – 12.72 (14.86) 45.88 30.91 9.01

Table A9.6: Senior Secondary, Year 1 Number of Students Annual Growth Rates



Total

1995/96 715,895 858,245 67,611 91,108 1,732,859 1996/97 741,005 926,108 72,430 97,072 1,836,615 3.51 7.91 7.13 6.55 5.99 1997/98 754,084 837,251 81,217 104,584 1,777,136 1.77 (9.60) 12.13 7.74 (3.24) 1998/99 772,794 846,857 71,632 95,302 1,786,585 2.48 1.15 (11.80) (8.88) 0.54 1999/00 794,252 876,431 80,946 105,321 1,856,950 2.78 3.49 13.00 10.51 3.94 2000/01 808,713 905,176 96,975 106,228 1,917,092 1.82 3.28 19.80 0.86 3.24 2001/02 838,807 962,615 101,060 130,482 2,032,964 3.72 6.35 4.21 22.83 6.04 Gain or (loss) 122,912 104,370 33,449 39,374 300,105 – – – – – 6-year growth rate

– – – – – 17.17 12.16 49.47 43.22 17.32

MONE = Ministry of National Education. Source for all tables: Ministry of National Education, Indonesia Educational Statistics in Brief. 1995/96, 1996/97, 1997/98, 1998/99, 1999/00, 2000/01, 2001/02; Ministry of Religious Affairs, Education Statistics. 1995/96, 1996/97, 1997/98, 1998/99, 1999/00, 2000/01, 2001/02.

Appendix 9 55

National Trends in JSE Enrolment

0

1,000,000

2,000,000

3,000,000

4,000,000

5,000,000

6,000,000

95/96 96/97 97/98 98/99 99/00 00/01 01/02Years

Enro

lme

nt JSE GovtJSE PrivateMTs GovtMTs Private

MTS = junior secondary level madrasah.

asian development bank · 2014-09-29 · currency equivalents currency unit – rupiah (rp) at...

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