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ASIAN DEVELOPMENT BANK PCR:INO 28069
PROJECT COMPLETION REPORT
ON THE
BASIC EDUCATION PROJECT (Loan 1442-INO)
IN
INDONESIA
December 2003
CURRENCY EQUIVALENTS Currency Unit – rupiah (Rp)
At Appraisal At Project Completion (1 May 1996) (30 April 2002)
Rp1.00 = $0.000427 $0.0001125 $1.00 = Rp2,342 Rp8,889
ABBREVIATIONS ADB – Asian Development Bank ASFI – Assistance Scheme for Facilities Improvement BAPPENAS – Badan Perencanaan Pembangunan Nasional (national development
planning agency) BME – benefit monitoring and evaluation CET – center for education and training (science and mathematics center) CLRC – community learning resource center CPIU – Central Project Implementation Unit DGIID – Directorate General of Islamic Institutions Development (Ministry of
Religious Affairs) DISD – Directorate of Islamic Schools Development (Ministry of Religious
Affairs) EMIS – education management information system ESC – Education Services Contracting IAIN – Islamic higher education institution ICT – information and communication technology IRM – Indonesia Resident Mission MI – madrasah ibtidaiyah (primary school under Ministry of Religious Affairs) MIN – madrasah ibtidaiyah negeri (government primary madrasah) MONE – Ministry of National Education MORA – Ministry of Religious Affairs MTs – madrasah tsanawiyah (junior secondary school under Ministry of
Religious Affairs) MTsN – madrasah tsanawiyah negeri (government junior secondary madrasah) PPIU – provincial project implementation unit PSC – project steering committee
NOTES
(i) The fiscal year (FY) of the Government ended on 31 March until 2000 and now ends on 31 December.
(ii) In this report, “$” refers to US dollars. (iii) The school year begins on 1 July and ends on 30 June.
CONTENTS
Page
BASIC DATA ii
MAP vii I. PROJECT DRESCRIPTION 1 II. EVALUATION OF DESIGN AND IMPELEMENTATION 2
A. Relevance of Design and Formulation 2 B. Project Outputs 3 C. Project Costs and Financing 5 D. Disbursements 5 E. Project Schedule 6 F. Implementation Arrangements 6 G. Conditions and Covenants 6 H. Consultant Recruitment and Procurement 6 I. Performance of Consultants, Contractors, and Suppliers 7 J. Performance of the Borrower and Executing Agency 7 K. Performance of the Asian Development Bank 7
III. EVALUATION OF INITIAL PERFORMANCE AND BENEFITS 8 A. Relevance 8 B. Efficacy in Achievement of Purpose 9 C. Efficiency in Achievement of Outputs and Purpose 10 D. Preliminary Assessment of Sustainability 10 E. Institutional Development and Other Impacts 10
IV. OVERALL ASSESSMENT AND RECOMMENDATIONS 11 A. Overall Assessment 11 B. Lessons Learned 12 C. Recommendations 13
APPENDIXES 1. List of Project Model Madrasahs and Centers 15 2. Project Framework 16 3. School Enrollment 27 4. Loan Disbursements 28 5. Project Implementation Schedule: Original versus Actual 29 6. Loan Covenants 31 7. Project Performance Rating Assessment 41
BASIC DATA A. Loan Identification 1. Country 2. Loan Number
3. Project Title 4. Borrower
5. Executing Agency
6. Amount of Loan 7. Project Completion Report Number
Indonesia 1442-INO Basic Education Project Indonesia Directorate General of Islamic Institutions Development Ordinary capital resources: $85.0 million PCR:INO 792
B. Loan Data 1. Appraisal – Date Started – Date Completed 2. Loan Negotiations – Date Started – Date Completed 3. Date of Board Approval 4. Date of Loan Agreement 5. Date of Loan Effectiveness – In Loan Agreement – Actual 6. Closing Date – In Loan Agreement – Actual 7. Terms of Loan – Interest Rate – Maturity
– Grace Period
29 January 1996 15 February 1996 6 May 1996 7 May 1996 6 June 1996 2 July 1996 5 September 1996 5 September 1996 30 April 2002 15 August 2002 Pool-based variable lending 25 years 5 years
8. Disbursements a. Dates
Initial Disbursement
1 November 1996
Final Disbursement
15 August 2002
Time Interval
5 years and 7 months
Effective Date
5 September 1996
Original Closing Date
30 April 2002
Time Interval
5 years and 5 months
iii
b. Amounts ($)
Category or Subloan
Original Allocation
Last Revised Allocation
Amount Canceled
Amount Available
Net Amount
Disbursed
Balance Not Disbursed
01. Civil Works
2,292,000
2,982,455
(690,455)
4,088,500
2,982,455
1,106,045
02. Equipment 3,181,000 4,899,074 (1,718,074) 4,390,200 4,899,074 (508,874)
03. Furniture 330,000 591,482 (261,482) 440,000 591,482 (151,482)
04. Instructional Materials
20,939,000
9,268,811
11,670,189
17,054,400
9,268,811
7,785,589
05A.Teacher and Staff Development Overseas
4,873,000
5,212,076
(339,076)
5,530,000
5,212,076
317,924
05B.Teacher and Staff Development In-country
23,416,000
16,825,865
6,590,135
21,450,600
16,825,865
4,624,735
06. Studies 1,315,000 910,493 404,507 975,000 910,493 64,507
07. Consulting Services 6,994,000 5,865,986 1,128,014 5,998,000 5,865,986 132,014
08. Special Programs (ASFI)
3,741,000
2,964,751
776,249
3,250,000
2,964,751
285,249
09.Project Implementation Capital Cost (CPIU)
356,000
68,383
287,617
46,300
68,383
(22,083)
10. Interest and Commitment Charge
13,777,000
7,927,091
5,849,909
13,777,000
7,927,091
5,849,909
11. Unallocated
3,786,000
0
3,786,000
0
0
0
Total
85,000,000
57,516,466
27,483,534a
77,000,000
57,516,467
19,483,533
ASFI = Assistance Scheme for Facilities Improvement ; CPIU = Central Project Implementation Unit a Include partial cancellation of $8 million during implementation and $19.48 million at the time of loan closure.
9. Local Costs (Asian Development Bank-financed)
- Amount ($) - Percentage of Local Costs - Percentage of Total Cost
4,488,143 11.96 8.60
C. Project Data
1. Project Cost ($ million)
Cost Appraisal Estimate Actual
Foreign Exchange Cost 47.5 53.0 Local Currency Cost 104.4 52.1 Total Cost 151.9 105.1
iv
2. Financing Plan ($ million)a
Appraisal Estimate Actual Costs Implementation Costs Borrower-Financed 56.4 41.3 ADB-Financed 71.2 49.6 Community-Financed 10.5 6.3 Total Cost 138.1 97.2 IDC Costs Borrower-Financed 0.0 0.0 ADB-Financed 13.8 7.9 Total Cost 13.8 7.9
ADB = Asian Development Bank; IDC = interest during construction. a The calculation is based on the exchange rate to the dollar of each fiscal year.
3. Cost Breakdown by Project Components ($ ‘000) ______________________________________________________________________ Appraisal Estimate Actual Component ______________________________________________________________________
(a) Civil Works 14,016 19,552 (b) Equipment 4,728 4,899 (c) Furniture 1,813 592 (d) Instructional Materials 22,299 9,269 (e) Overseas Teacher and Staff Development 5,489 5,212 (f) In-Country Teacher and Staff Development 36,400 22,738 (g) Studies 1,390 911 (h) Consulting Services 7,478 5,866
(i) Special Programs 31,660 18,530 (j) Project Implementation
Costs 7,959 78 (k) Taxes 4,853 9,557 (l) Interest During Construction 13,777 7,927 Total 151,862 105,129 ______________________________________________________________________
4. Project Schedule
Item Appraisal Estimate Actual
v
(a) Date of Contract with Consultants
I Qtr. 1997
IV Qtr. 1996a
(b) Civil Works Contract Date of Award III Qtr. 1996 IV Qtr. 1996 Completion of Work I Qtr. 2000 III Qtr. 2000
(c) Equipment and Supplies Dates First Procurement IV Qtr. 1996 IV Qtr. 1996 Last Procurement II Qtr. 1997 I Qtr. 2000 Completion of Equipment Installation and Operations II. Qtr. 1999 IV Qtr.2000 (d) Staff Development
In-Country—First Contract II Qtr. 1996 I Qtr. 1997 Overseas—First Contract II Qtr. 1997 II Qtr. 1998 Completion of Activities IV Qtr. 2000 IV Qtr. 2000
(e) Special Programs (ASFI) First of ASFI III. Qtr. 1996 IV Qtr. 1996 Last of ASFI III Qtr. 2000 IV Qtr. 2000
Completion of Activities III Qtr. 2000 IV Qtr. 2000 ASFI = Assistance Scheme for Facilities Improvement; Qtr. = quarter a Fielding of consultants, however, was delayed by about 18 months
5. Project Performance Ratings
Rating Implementation Period Development
Objective Implementation
Objective 1. 2. 3. 4. 5. 6.
From 12 December 1996 to 19 November 1997 From 27 November 1997 to 24 November 1998 From 4 December 1998 to 15 October 1999 From 13 December 1999 to 26 May 2000 From 9 June 2000 to 15 January 2001 From 31 January 2001 to 1 April 2002
Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory
Satisfactory Satisfactory Satisfactory Satisfactory
Highly Satisfactory Highly Satisfactory
D. Data on Asian Development Bank Missions
vi
Name of Mission
Dates
Number of People
Number of Person-Days
Specialization of Membersa
Fact-Finding 17 Oct–9 Nov 1995 2 40 d,e Appraisal 29 Jan–15 Feb 1996 3 69 e, j, m Inception 9–12 Dec 1996 1 4 e Review 1 19–27 Nov 1997 1 9 b Review 2 24 Nov–4 Dec 1998 2 20 b, l Midterm Review 15 Oct–13 Dec 1999 3 48 h, o Review 3 26 May–9 Jun 2000 2 30 h, o Review 4 15–31 Jan 2001 4 38 h, o, j, p Review 5 1–26 Apr 2002 4 30 h, o, g
Project Completionb
Total
7 Apr–3 May 2003
3 25
20 308
j, m, p
a a = manager; b = project specialist; c = financial analyst; d = counsel; e = economist; f = procurement specialist; g = control officer; h = programs officer; i = education specialist; j = consultant; k = young professional; l = assistant project analyst; m = social sector specialist; n = loan clerk; o = project implementation officer; p = project officer.
b The Mission comprised S.A. Chowdhury, principal sector specialist; D. Prijomustiko, senior project officer; and S.N. Ahmed, staff consultant.
n~.~
1R
RM
1
I. PROJECT DRESCRIPTION
1. On 6 June 1996, the Asian Development Bank (ADB) approved an $85.0 million loan to the Government of Indonesia for the Basic Education Project. The Project’s objectives were to support the Government’s efforts to provide quality basic education to all eligible children by improving the educational standards of madrasah ibtidaiyah (MI) and madrasah tsanawiyah (MTs), which are primary and junior secondary schools, respectively, and the capability of the institutions involved in the development, regulation, and management of basic education under the Ministry of Religious Affairs (MORA). This undertaking was conceptualized as a pilot project and covered public and private madrasahs in 15 selected districts of six provinces: Lampung, West Java, Central Java, East Java, South Kalimantan, and West Nusa Tenggara. This was the first multilateral-funded loan project administered by MORA. 2. The Project’s three components comprised improving the quality of basic education, promoting equitable access to basic education, and strengthening the institutional framework. The improving the quality of basic education component included (i) implementing the 1994 national curriculum; (ii) developing effective teaching; (iii) enhancing educational resources; (iv) establishing model MIs and MTs in all project districts; and (v) improving school management, supervision, and accreditation. 3. Under the 1994 curriculum program, the Project assisted the development of teacher handbooks and support materials, in collaboration with the Center for Book Development of the Ministry of National Education (MONE), and nationwide workshops were held for the socialization of the 1994 curriculum among MI and MTs principals, supervisors, and administrators. 4. To develop effective teaching, the qualifications of about 5,560 teachers were upgraded, including teachers of science, mathematics, and English. In-service training in content and teaching methodologies was provided to 19,897 teachers. The Project also assisted in the establishment of centers for in-service training of science and mathematics teachers at three centers for training and education in Jakarta, Surabaya, and Bandung. To enhance the educational resources for madrasahs, 1,005 libraries and 485 science laboratories were rehabilitated and 1,368 science kits, 2,080,000 new textbooks, 286,430 teacher handbooks, and 194,495 supplementary learning modules were supplied. 5. The establishment of 24 MIs and 15 MTs, as model madrasahs and resource centers (Appendix 1), was supported. Each model MT was designed to have a common learning resource center (CLRC) equipped with training and residential facilities for the in-service training of teachers and other madrasah personnel. Provision was made for the training and placement of 141 qualified master teachers, who would act as resource persons at the model schools and CLRC facilities. 6. To strengthen madrasah management, supervision, and accreditation, 7,535 school principals; 7,789 administration and finance officials; 5,489 school supervisors and/or inspectors; and 1,048 prospective accreditation officials from MORA’s central, provincial, and district offices were trained. 7. Promoting equitable access to basic education component included the rehabilitation and upgrading of school facilities and the provision of grant–in-aid assistance to disadvantaged
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students. The Project rehabilitated 1,214 dilapidated classrooms, constructed 1,788 new classrooms, provided toilets and water supply and sanitation facilities, and built or rehabilitated 454 student dormitories. In addition, 5,854 poor students were provided with stipends to study at MIs and MTs. 8. Strengthening of the institutional framework component included (i) strengthening MORA’s central, provincial, and district offices; (ii) rationalizing school coverage; and (iii) strengthening madrasahs’ support institutions. The inputs for this program comprised overseas fellowships and training for 138 staff members in the areas of educational planning, administration, and finance. Additionally, 1,704 staff members received in-country training. 9. To assist the implementation of these activities, 259 person-months of international and 541 person-months of domestic consulting services were used.
II. EVALUATION OF DESIGN AND IMPELEMENTATION
A. Relevance of Design and Formulation
10. The Project was designed in the context of the Government’s Rencana Pembangunan Lima Tahun (5-year development plan) VI (FY1996/97–FY2000/2001) and ADB’s country operational strategy for Indonesia.1 The strategy supported the development of basic education provided through madrasahs to gradually make the quality of basic education equal to the quality of mainstream education under MONE. The Project’s design was consistent with the Government’s plan to provide equitable access to 9 years of basic education by using the potential of madrasahs mostly located in rural or underserved urban areas and remains fully relevant. Since most madrasahs had poor educational facilities and lacked qualified human resources, the Project design focused on providing physical facilities, educational equipment, instructional materials, staff training, and institutional strengthening. At the core of the Project’s design was the establishment of 39 model madrasahs and 15 CLRCs to serve as resource centers for the sustained professional development of principals and teachers in the vicinity of each. 11. The target for overseas training was somewhat unrealistic, because of the lack of availability of an adequate number of qualified candidates from MORA’s mainstream offices. Consequently, the doctoral program was cancelled and some master’s programs could not be implemented. However, a substantial number of MORA’s senior and mid-level officials received short-term domestic and overseas training that helped to improve MORA’s institutional capacity. Conceptually, the design of model madrasahs and CLRCs as lead institutions for the development of a large number of other madrasahs appeared sound. However, some concerns remain about the sustainability of CLRCs as resource centers and as centers of in-service recurrent training. To date, allocation of a routine budget for training activities for CLRCs has not been institutionalized, although some allocation for operation and maintenance is in place. Apparently, the Project design did not take into consideration the long-term sustainability of these institutions, which were established under the Project. Policy dialogue is ongoing between ADB and Government to provide adequate staff and financial resources that will ensure the sustainability of CLRCs.
1 ADB. 1993. Indonesia: The Country Operational Program Paper, 1993–1996. Manila.
3
12. In providing direct educational inputs to nonmodel madrasahs, the design and strategy was generally successful, especially in human resources development, including the training of finance officers and principals, teachers, and librarians. However, the human resources development target of the original project design fell far short of the actual requirement. The duration of teacher training programs in the original project design was also unrealistic, in that a large pool of teachers cannot be withdrawn for a substantial part of the academic calendar. During the Project’s midterm review (June–July 2000), however, the physical targets of teacher training were increased to cover almost 80% of all teachers, but the training period’s duration was reduced to a more realistic level. 13. One of the successful features of the Project design was the partnership of the madrasahs, the Government, and ADB, under a matching grant program (the madrasahs contributed 34% of the total cost, the Government 50%, and ADB 16% through the loan). The program was known as the Assistance Scheme for Facilities Improvement (ASFI) of madrasahs. The ASFI created strong motivation among local community residents to improve the quality of their madrasahs, and make them competitive with the other schools in the area. In most cases, communities accomplished a much higher level of physical facilities than originally planned or could be achieved through the public works department. The ASFI component of the Project design succeeded in contributing to increased access to basic education in remote areas. 14. The stipend program for children from poor families was removed from the Project and merged with a social safety net program that was implemented in 1997, to help the poorest segment of the Indonesian population overcome the negative consequences of the regional economic crisis, and funded by multiple development partners (ADB, Government of the Netherlands, and World Bank). However, about 5,854 poor students benefited from the stipend program in the first year of project implementation. 15. Overall, the Project design was relevant and its formulation is considered sound. B. Project Outputs
16. Project implementation was delayed due to the negative impact of the 1997 economic crisis and the late fielding of consultants. The midterm review identified some weaknesses in the Project’s design and original targets. Based on this review, some targets were adjusted. For example, targets for staff training and civil works were considered inadequate to meet actual requirements. The duration of training programs and targets were therefore revised. The Project resulted in three categories of outputs: (i) an improved quality of basic education, (ii) an improved access to basic education, and (iii) a strengthened institutional framework to deliver basic education. Details of the Project’s key components, outputs, and achievements are provided in Appendix 2.
1. Improved Quality of Basic Education
17. MORA’s capability to implement the 1994 national curriculum was strengthened through a variety of inputs and activities. About 18,336 principals, supervisors, and teachers attended the orientation workshop for the 1994 curriculum. The educational qualifications of 5,560 underqualified teachers were upgraded, while about 3,982 mismatched teachers successfully completed 1-year teacher certification programs. The Project contributed significantly to upgrading the skills of underqualified teachers. About 25% of public MI and 8% of private MI teachers increased their qualifications to D2 level. About 34% of public MTs and 30% of private MTs teachers upgraded their qualifications to D3 level. About 20,000 teachers participated in
4
short in-service training covering relevant subjects and teaching methodologies, compared with the original target of 2,267. Moreover, a teacher mapping study was conducted to identify shortages and surpluses of teachers of various subjects in each madrasah. The data produced created a useful basis from which to take action to redeploy teachers. 18. The teaching and learning resources of madrasahs were also significantly strengthened. About 1,005 madrasah libraries and 485 science laboratories were upgraded. The madrasah libraries received 1,787 sets of reference books, and the science laboratories were provided with 1,368 science kits. The provision of physical inputs was accompanied by the training of 3,100 teacher-librarians and 766 teacher-technicians, who learned to operate and maintain science laboratories, and 53 teacher-technicians, who learned to operate and maintain language laboratories. In addition to reference books, the madrasahs received about 3.0 million new textbooks, 286,430 supplementary textbooks, teacher handbooks, and 194,495 distance learning modules. 19. The Project was successful in helping 24 MIs and 15 MTs become model madrasahs, and these models of enhanced educational quality serve as lead institutions for improving the quality of other public and private madrasahs in their cluster areas. The model madrasahs and CLRCs were equipped with an adequate number of reference books; teacher handbooks; and other instructional materials, including science kits, computer units, and language laboratories. The master teachers of model madrasahs were trained overseas for 1 year in the core subjects of science, mathematics, and English. These educators also received information and communication technology training. In addition, the principals of model madrasahs received short-term overseas training in school management. 20. The supervision and accreditation system of madrasahs was strengthened through the extensive training of accreditation staff and principals, supervisors, and other personnel involved in the management of madrasahs at central, provincial, district, and school levels. About 7,500 principals and vice principals received short-term training in school management, while 5,489 inspectors and supervisors participated in supervision and inspection workshops. About 7,800 administration and finance officers from madrasahs and yayasans received training in financial management. Manuals were developed for school management, finance, and budgeting; community resources mobilization; and school supervision and accreditation. About 1,000 principals, supervisors, and prospective accreditation committee members received training in accreditation. Twenty-six officials from MORA’s central and provincial offices attended overseas training in accreditation in Australia. To strengthen the link between madrasahs and communities, 30 district level workshops were held. These workshops involved about 6,500 local community leaders and parent-teacher association representatives.
2. Promoting Equitable Access to Basic Education
21. The Project used a two-pronged approach to promote equitable access to basic education: (i) rehabilitation and upgrading of school facilities under the ASFI program and (ii) provision of grant-in-aid assistance to disadvantaged children. Under the ASFI program component, 1,214 classrooms were rehabilitated and refurbished, 1,788 new classrooms were constructed, and 589 toilets and 454 student dormitories were rehabilitated. Under the grant-in-aid assistance component, 5,854 children from low-income families were provided stipends during the Project’s first year. However, during subsequent years, this component was merged with the Government’s National Social Safety Net Program. Details of MI and MTs enrollments in the Project’s districts are provided in Appendix 3.
5
3. Strengthening the Institutional Framework
22. Under this component, the Project strengthened the institutional framework of MORA offices and its support institutions responsible for resource mobilization and planning and management of madrasahs through extensive in-country and overseas training programs. The Project enabled 8 MORA officials to successfully complete master’s degrees in educational planning, policy development, and educational administration. One hundred and thirty eight MORA officials successfully completed short-term overseas training in policy development, educational planning, and educational management information systems (EMIS) and continued to serve under MORA. An EMIS was established at the central and provincial levels through the provision of computer units; short-term training for computer operators; and data collection, entry, and processing systems institutionalization. Three centers for education and training were strengthened through the provision of physical facilities and overseas training of 18 staff members. The management capacity of private madrasahs’ support institutions (yayasans and pasentrens) was enhanced through the provision of short-term training for their personnel. 23. To rationalize the geographic coverage of madrasahs and pasentrens, a detailed school mapping study was conducted to ascertain whether small and low-quality madrasahs should be consolidated to provide better educational quality and achieve economy of scale. However, the study’s results could not be implemented because the majority of madrasahs are privately established and owned by small foundations that MORA has limited influence in effecting changes or mergers. C. Project Costs and Financing
24. The loan was approved in the original amount of $85.0 million but was reduced to $82.5 million after the deletion of the stipend program. The loan was further downsized to $77.0 million during the 1998 review, after verifying that the Project would not be able to use the entire loan amount. At closing, surplus loan proceeds, amounting to $19.5 million, were cancelled. The reduced loan amount had no significant negative impact on project scope, since substantial gains in dollar value occurred when using loan proceeds to procure local goods and services. 25. A summary of the Project’s appraisal and actual financing plans and costs is shown in the following table. Details of the appraisal and actual costs by component are shown in the Basic Data section of this report.
Appraisal and Actual Financing Plans and Costs Source Appraisal Estimate Actual Foreign Local Total Foreign Local Total Borrower-Financed 0.0 66.983 66.983 0.0 47.584 47.584 ADB–Financed 46.870 38.130 85.000 53.028 4.488 57.516 Total 46.870 105.113 151.983 53.028 52.072 105.10 ADB = Asian Development Bank. D. Disbursements
26. The first disbursement, in the amount of $1.516 million, was made in the fourth quarter of 1996, and the final disbursement, in the amount of $0.541 million, was made in the third quarter of 2002 (Appendix 4).
6
E. Project Schedule
27. Project implementation did not fully follow the schedule envisaged at appraisal. The 1997 economic crisis severely affected Indonesia and negatively impacted project implementation. The mobilization of consulting services was delayed by 18 months. During 1998–2000, construction activities, for which the Government paid 78% of the total cost, consumed most of the counterpart funds. Consequently, the in-country training program that needed government funding was implemented only in the Project’s last 2 years. Procurement of books and instructional materials was undertaken throughout the Project’s cycle. All other project targets were met or even exceeded. Appendix 5 provides a comparison of the original schedule and actual implementation of major project activities. The delayed release of counterpart funds, caused by the 1997 economic crisis, resulted in the delayed implementation of civil works and in-country training of staff. However, these activities were accomplished after accelerated efforts were mounted in the last year of project implementation. F. Implementation Arrangements
28. The Project was implemented generally in accordance with the arrangements envisaged at appraisal. MORA’s Directorate General of Islamic Institutions Development (DGIID) was the Executing Agency. The Central Project Implementation Unit (CPIU), established under DGIID, carried out the day-to-day implementation of project activities. A project steering committee was established, and meetings were held at least twice a year to provide policy guidance, oversee project implementation, and carry out coordination with other agencies. At the provincial level, provincial project implementation units (PPIUs) were established and responsible to CPIU for the implementation of project activities. Provincial and district advisory committees were also established to provide guidelines and supervise implementation in provinces. CPIU and PPIUs were supported by teams of academic and operation and management consultants. Although initially a shortage of competent and trained staff existed, causing slow progress during implementation, the difficulties were ultimately resolved through the provision of additional staff and on-the-job training. The Project’s implementation arrangements were adequate to deliver project inputs and work toward achieving intended purposes and outputs. However, the advance action anticipated in the report and recommendation of the President (para. 94) did not materialize, due to the Executing Agency’s lack of experience. G. Conditions and Covenants
29. Compliance with major conditions and covenants was generally satisfactory. During the Project’s initial stages, however, some lack of awareness of the details of the actions stipulated in loan covenants existed. For example, no action was taken until 1998 on the provision regarding the formation of the Provincial Advisory Committee and the District Advisory Committee. Similarly, madrasahs did not provide the required semiannual financial reports. However, concerted efforts were made by the Executing Agency and ADB missions to accelerate compliance, and at loan closing most covenants were complied with. The details of compliance with the covenants are provided in Appendix 6. H. Consultant Recruitment and Procurement
30. 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: Academic Consultants (Package A) and Project Operations and Management (Package B). The international consultants’ inputs for both packages totaled 259 person-
7
months, and the inputs of domestic consultants totaled 541 person-months, compared with the 222 person-months for international consultants and 555 person-months for domestic consultants envisaged in the Project’s original design. Although the consultant contract was signed as scheduled, actual mobilization of the consultants was delayed by about 18 months, due to the 1997 economic crisis. 31. The procurement of goods and services generally followed the guidelines provided in ADB’s handbook. However, in some instances, the procurement process was delayed, due to counterpart officials’ lack of familiarity with ADB’s procedures. MORA was advised by ADB to strengthen governance in procurement of goods and services under the loan. As a result, MORA implemented certain actions to streamline procurement process. I. Performance of Consultants, Contractors, and Suppliers
32. The consultants’ overall performance was considered satisfactory. Changes in their schedule of deployment and person-months were accommodated with the approval of ADB. The quality of site development and construction was generally satisfactory, with a few exceptions, namely MI models and CLRCs in Bentang and NTB. However, with ADB’s concurrence, MORA appointed some Indonesians as international consultants. This caused disparity in remuneration between these consultants and domestic consultants having the same qualifications, which led to professional tension and complaints. Initial implementation was slow and somewhat tentative but gradually improved. 33. The suppliers’ performance and quality of instructional materials and science equipment, including computers, was generally satisfactory. However, the quality of the furniture provided varied widely among madrasahs and CLRCs across the Project’s districts. J. Performance of the Borrower and Executing Agency
34. MORA had no previous experience in implementing similar ADB or other development partner-funded projects. In addition, during initial years, frequent changes in project personnel negatively affected project implementation. Subsequently, corrective measures were taken by providing additional staff to CPIUs and providing them with ADB-sponsored training on project implementation. During the Project’s last 2 years, significant improvement was noticed in implementation under a new project manager. The quality of PPIU performance varied from province to province, depending on the technical expertise and leadership quality of the staff at the kanwil (provincial office) level. DIP (development budget) funds were inadequate and released late during the first 2 years. The late release of funds was partly due to the 1997 economic crisis, but release was accelerated during the Project’s final 2 years, which contributed to achieving most of the physical targets. ASFI and staff development targets were exceeded. K. Performance of the Asian Development Bank
35. The overall performance of ADB was satisfactory during project preparation and supervision. Throughout the implementation period, ADB had a cordial relationship with DGIID and MORA. Project implementation was accelerated after the Project was delegated to IRM. Close monitoring and supervision by ADB at an early stage could have led to better performance by MORA.
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1. Project Preparation and Appraisal
36. Successive project preparation missions carried out policy dialogue on subsector constraints and requirements. The Project’s preparation, appraisal, and loan effectiveness were accomplished in normal time. However, some elements of the Project’s design and targets formulated in the appraisal report, in particular those relating to staff development, proved to be unsound and were revised during implementation.
2. Project Supervision
37. ADB’s performance in project supervision was generally satisfactory. Six review missions, including a midterm review were fielded. The memorandum of understanding signed at the end of each mission provided guidance to the Executing Agency for taking corrective measures and accelerating implementation. The Project should have been supervised closely in the first 2 years, especially because the international consultants were not fielded and MORA had no experience in implementing aid agency-funded projects. Due to a lack of understanding of ADB’s procedures by project staff, which was made worse by frequent changes of personnel, approval of some procurement activities was either delayed or declined, due to observed irregularities.
III. EVALUATION OF INITIAL PERFORMANCE AND BENEFITS
A. Relevance
38. The Project was relevant and designed within the broad framework of ADB’s operational strategy to meet the Government’s development objectives at the time of appraisal. Moreover, the Project supports the Government’s current efforts to provide 9 years of basic education for all by 2008. The development objectives relate to increasing access to quality 9-year basic education in the Project’s districts by developing madrasahs' capacity to effectively teach the 1994 national curriculum. 39. The Project contributed to balanced development of basic education by helping to upgrade the standards at MORA schools to the level of mainstream MONE schools. The Project increased madrasah quality and capacity by establishing 24 model MIs and 15 model MTs and upgrading and equipping additional non-government madrasahs. At completion, assisted madrasahs were functioning reasonably well. Newly established CLRCs, attached to the MTs, were adequately equipped and staffed. Training programs were developed on the basis of needs assessments of teachers and other madrasah personnel. 40. Local networking and nationwide links were established with the private, public, and model madrasahs through the strengthening of the principals’ professional group; the junior secondary teachers’ group; the primary teachers’ group; and the parent, community, and teacher association. 41. Overseas fellowships and in-country training provided by the Project were relevant to the participants’ needs and had positive impacts on the quality of senior administrators and teachers and principals. 42. By strengthening the capability of madrasahs to teach the 1994 national curriculum, the Project enabled the graduates of madrasahs to participate in the mainstream national education system and the labor force.
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43. Teachers and students are already benefiting from the facilities, equipment, and books provided by the Project. Most equipment is reasonably maintained and is being used. 44. Based on these considerations, the Project is rated highly relevant. B. Efficacy in Achievement of Purpose
45. The Project was effective in meeting most appraisal targets. All 39 project-assisted model madrasahs were functioning properly. The classrooms and science laboratories and/or workshops were being fully used at project completion. The Project Completion Report Mission visited 17 model madrasahs and 35 nonmodel madrasahs in 5 provinces from 7 April to 3 May 2003. All madrasahs visited were functioning reasonably well with adequate staff and resources provided by MORA and its provincial and district offices. 46. The following key appraisal targets were met:
(i) construction of 39 new model madrasahs and 1,788 new classrooms; rehabilitation of 1,214 classrooms (in existing madrasahs); establishment of 15 CLRCs, 3 science and mathematics education centers, 19 language laboratories, and 58 science laboratories; and construction or rehabilitation of an additional 427 science laboratories in private madrasahs, under ASFI;
(ii) procurement of instructional materials, including books, worth almost $9.27 million;
(iii) procurement of 1,368 science kits, 582 computer units, 43 service vehicles and 950 motorcycles, 15 language laboratory sets, 87 audio visual sets, and 54 diesel generators and office equipment for CPIUs and PPIUs;
(iv) development and training of staff through the strengthening of the institutional management capacity of MORA’s central and provincial offices and yayasans involved in the development of madrasahs, through in-country training and overseas study visits; and
(v) establishment of an educational management information system that enables MORA and the Government to undertake policy planning and the management of madrasah education on the basis of reliable data.
47. The madrasahs’ efficacy in the Project’s districts was enhanced by providing equitable access to poor children, especially girls, located in rural and underserved areas. Based on benefit monitoring and evaluation (BME) surveys in project districts, MI enrollment increased from 339,768 in 1998–1999 to 355,520 in 2001–2002, while MTs enrollment increased from 217,046 in 1998–1999 to 249,062 in 2001–2002. MI and MTs enrollment increased by about 3.70% and 14.75%, respectively. In general, the growth rate of madrasahs’ enrollment in project districts exceeded that of mainstream schools under MONE. The gap in average results between madrasahs and general schools on the Nilai Evaluasi Murni (Original Evaluation Score) national test was reduced significantly. 48. Regarding gender, girls’ enrollment increased more than boys. The number of girls enrolled in project-district MIs from 1998-1999 to 2001-2002 increased by 7,100, compared to an increase of 5,526 for boys. In the case of MTs, the increase in enrollment of girls during the same period was 16,452, compared to 15,564 for boys. 49. Overall, the Project is rated efficacious.
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C. Efficiency in Achievement of Outputs and Purpose
50. In general, Project scope remained unchanged, except for the deletion of the stipend program (para. 23) and some minor adjustments. Teaching and learning significantly improved through extensive training programs and the provision of relevant educational inputs leading to the increased capability of madrasahs to teach the national curriculum. 51. The BME study and Project Completion Report Mission field visits indicated that most model madrasahs established under the Project succeeded in improving their quality and ranked among top schools in the district in student performance on national examinations. Better qualified teachers were appointed in model madrasahs. The number of teachers with D3 or S1 (undergraduate) qualifications increased from 319 in 1998–1999 to 512 during 2001–2002 (an increase of 60%). In the case of MIs, the number of teachers having D2 or higher qualifications increased from 194 to 272 during the same period (an increase of 35%). Fifty-six percent of model MTs improved their ranking within their districts in terms of Nilai Evaluasi Murni results. 52. External efficiency of madrasah education also appeared to increase, as indicated by the acceptance of a larger proportion of madrasah graduates in MONE’s senior secondary level general education and vocational training schools. 53. Based on these results, the Project is rated efficient in achieving its outputs and purpose. D. Preliminary Assessment of Sustainability
54. Project sustainability was based on expected improvements in the educational quality of madrasahs, which in turn would induce increased demand and willingness of the community to pay increased fees and other contributions. In addition, many expected that government subsidy to needy but viable private madrasahs would be increased. So far these assumptions have not been fully realized, although the Government is currently committed to providing increased support to all schools, including madrasahs, under the new education law of 2003. In addition, assisted madrasahs, particularly model madrasahs, appear to enjoy strong community support and therefore seem to be suitable for the community. The new institutions created under the Project, especially CLRCs and science and mathematics education centers, need greater support from MORA and kanwils for their sustainability. The structure and professional use of the centers will need to be fully established by MORA and kanwils. 55. Based on this preliminary assessment, sustainability is considered likely. E. Institutional Development and Other Impacts
56. The Project succeeded in improving the institutional capability of MORA institutions responsible for madrasah policy making and management. Project inputs modernized madrasah facilities through the provision of science equipment, computer units, language laboratories, and in-country and overseas training. The Project created better equipped and more competitive schools. The average scores of madrasah pupils in project districts increased significantly in national examinations. The Project had a positive impact on enrollment and retention and the educational achievement of children. Moreover, the Project demonstrated a positive impact on the overall environment of madrasahs. The Project succeeded in modernizing the outlook of madrasah policy makers and managers on the needs of pupils in a changing environment.
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57. The Project impacted positively on increasing madrasah 9-year basic education levels in parallel with those of MONE schools. 58. Overall, the Project’s institutional impact is considered good.
IV. OVERALL ASSESSMENT AND RECOMMENDATIONS
A. Overall Assessment
59. The Project was well conceived and generally implemented as designed. However, the Project was designed and appraised prior to the 1997 economic crisis that affected Southeast Asian countries. As a result, some of the cost estimates of the appraisal report became irrelevant and had to be revised. During first 2 years of its implementation, the Project could not gather momentum, due to a lack of adequate counterpart funds. The fielding of consultants was delayed by 18 months. Consequently, the implementation of some critical elements was delayed, while some were implemented without consultant supervision. However, the Project’s scope and components remained largely relevant and contributed significantly to achieving project objectives. 60. Overall, the Project succeeded in improving the educational quality and enrollment capacity of MIs and MTs in project areas. The physical facilities of a large number of madrasahs were improved and expanded under the Project’s civil works program and ASFI programs (shared by local communities with donations in kind and cash). 61. Twenty-four MIs and 15 MTs were upgraded as model madrasahs to lead other madrasahs in quality improvement efforts and serve as resource centers. The facilities of model MTs were supplemented by the establishment of CLRCs, each with in-service training and boarding facilities for about 100 trainees. Model madrasahs were equipped with laboratories (science and language), libraries, rooms for computers, and auditoriums. The physical inputs were matched with the training of about 60,000 staff, including administration and finance officers; laboratory technicians; and MORA’s central, provincial, and district officials. Teachers, principals, supervisors, and librarians were also trained. In addition, about 385 MORA policy makers, madrasah education officers, and master teachers received overseas training. The capability of institutions supporting madrasahs was strengthened through the training of regional MORA officers; yayasan managers; and parent, community, and teacher association representatives. Manuals and guidelines and evaluation instruments were developed and disseminated to improve the management, financing, supervision, and accreditation systems of madrasahs. 62. Access of poor rural children to basic education was improved through stipends and the provision of bicycles, apart from increasing the number of schools within reachable distances. An EMIS for madrasah education was established and institutionalized successfully. In most cases, the Project’s achievements exceeded original targets. The combined impact of the Project’s physical inputs, consulting services, and training program was clearly visible on madrasah management, teaching, and learning processes and on the motivation of teachers; principals; and representatives of the parent, community, and teacher association in the madrasah community.
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63. The BME study conducted in December 20012 indicated significant improvement in madrasah performance in project areas. Key indicators include the following: (i) Enrollment rates for MIs and MTs increased by 9.2%, compared with 6.3% for
primary schools and junior secondary schools under MONE. The demand for admission to project madrasahs also increased.
(ii) Internal efficiency increased; student drop-out rates declined and the percentage of students repeating grades dropped to insignificant levels.
(iii) MI and MTs student performance in the national examination improved. The gap between MIs and MTs and primary schools and junior secondary schools under MONE in Nilai Evaluasi Murni results narrowed.
(iv) About 56% of model MTs and many other madrasahs assisted by the Project improved significantly their ranking within their districts.
(v) Project assistance to madrasahs served as catalyst for stimulating further community support for these places of learning.
(vi) External efficiency improved; the proportion of madrasah graduates in MONE school admissions increased.
64. Overall, the Project is rated successful.
B. Lessons Learned
65. Given the required inputs, madrasahs demonstrated their potential for improved quality and contributed significantly to the Government’s efforts to provide quality 9-year basic education to all.3 66. The model madrasahs were successfully established; however, the success of the institutions depended greatly on the leadership of the principals. Therefore, the selection and recruitment of model madrasah principals should be competitive and based on performance. 67. The ASFI program proved to be one of the Project’s successful components. Often the communities accomplished two to three times more than the expected targets, through larger contributions and greater efficiency in the use of available resources. The ASFI program can be used as a strategy for community participation for future aid projects. However, loan or grant components should comprise at least 50% of ASFI costs, for wider coverage, especially in poorer communities and remote areas.4 68. Some problems emerged that were related to the centralized procurement of instructional materials. In addition, in some areas the supply of the textbooks did not match increased enrollments, especially at private MTs. Several textbooks and teacher guides were not used by teachers who found these books irrelevant.
2 Faculty of Agricultural Technology, Bogor Agricultural University, December 2001, Development and
Implementation of Basic Education Project, Benefit Monitoring and Evaluation: Final Report. 3 In 2002, madrasahs accounted for nearly 20% of total enrollment of all children in schools. 4 For many poor and remotely located families, madrasahs seemed to be the first or only choice for their children’s
education.
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69. Engaging some Indonesian consultants as international consultants didn’t prove to be successful as they lacked wider international experience and knowledge. More care should have been taken during the selection and engagement of academic consultants.5 C. Recommendations
70. Project-Related. Three science and mathematics centers were established under the Project in Surabaya, Jakarta, and Bandung to upgrade the quality of science and mathematics education in madrasahs. Field visits did not indicate substantial activities at these institutions. MORA should, therefore, issue a decree by 31 March 2004 that specifies the functions and responsibilities of these institutions and ensures needed inputs in human resources and funds for the continued operation of these centers.
71. MORA has already issued a decree to make CLRCs formal providers of in-service training, but this decree needs to be supported by regular provisions in the routine budget that will commence in FY2004. 72. Textbooks are the most basic and effective learning tools for students. Efforts should be made to achieve a 1:1 pupil to textbook ratio. The selection and procurement of textbooks should be decentralized at the district and/or madrasah level.6 In certain specific circumstances, decentralized procurement will lead to increased efficiency and cost effectiveness. 73. MORA’s EMIS was established under the Project. Presently, operating expenses for the EMIS are being met through MORA’s development budget. For this reason, beginning in FY2004, funding for the EMIS should be provided through the routine budget, to ensure the continued operation of this system.
74. General. Given the same level of educational inputs, the leadership of madrasah principals proved to be a critical factor in determining the educational quality of madrasahs. Therefore, the selection and deployment of principals, especially for model madrasahs, should be carried out through a competitive process. 75. Madrasahs recruit mostly graduates of teacher training wings of Islamic higher education institutions (IAINs). Most IAINs have not revised and/or modernized their teacher training curricula to match the requirements of the new national curriculum. This continues to add to the accumulation of so-called mismatched teachers in madrasahs. The teacher training curricula of IAINs should therefore be revised to meet the current and future needs of madrasahs, especially in science, mathematics, and English. 76. In view of certain 1999 decentralization laws (numbers 22 and 25) and the new education law of 2003, decentralization of madrasahs at district and/or kota level should be considered. This will be consistent with MONE’s policy and overall strategy for basic education.
5 The matter was gradually resolved after the Project was delegated to IRM. Some of these contracts were either
terminated due to incompetence or not extended after completion. 6 This is the case in Loan No. 1863-INO, valued at $100 million (ADB. 2001. Decentralized Basic Education. Manila.).
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77. Further external assistance in the subsector will be needed to continue the reform and development work initiated under the Project.7 78. A project performance audit report should be prepared in or around 2006.
7 Based on the Project’s success in developing effective public-private partnership, under OED‘s ”Special Evaluation
Study on the Government and Nongovernment Provision of Primary Education in Bangladesh, Indonesia, and Nepal” (SST: STU 2003–2005, January 2003), further ADB assistance to the madrasah subsector was recommended. Currently, a madrasah sector assessment study is in progress under the auspices of MORA and ADB that will provide the basis for policy reforms and further development partner assistance to this subsector.
Appendix 1
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LIST OF PROJECT MODEL MADRASAHS AND CENTERS (as completed)
A. Madrasah Ibtidaiyah Model (primary schools) 1 MIN Wantisari, Lebak 2 MIN Cisaat, Serang 3 MIN Leuwinanggung, Serang 4 MIN Cibeureum, Pandeglang 5 MIN Pari, Pandeglang 6 MIN Larangan Brebes 7 MIN Bangbayan, Brebes 8 MIN Tanuraksan, Kebumen 9 MIN Slarang Kidul, Tegal 10 MIN Banyuajuh, Bangkalan 11 MIN Blawirejo, Lamongan 12 MIN Kawistolgi, Lamongan 13 MIN Prigi, Trenggalek 14 MIN Bandung Baru, South Lampung 15 MIN Pasar Baru, South Lampung 16 MIN Kalianda I, South Lampung 17 MIN Sesila, West Lombok 18 MIN Sanggeng, Central Lombok 19 MIN Tanah Bijah, Central Lombok 20 MIN Gunung Rajak, East Lombok 21 MIN Martapura, Banjar 22 MIN Tambak Serang, Banjar 23 MIN Panyuran, North Hulu Sungai 24 MIN Layap Paringi, North Hulu Sungai B. Madrasah Tsanawiyah Model (junior secondary schools) 1 MTsN Lebak, Lebak 2 MTsN Pandeglang I, Pandeglang 3 MTsN Pandaricang, Serang 4 MTsN Brebes, Brebes 5 MTsN Kebumen I, Kebumen 6 MTsN Babakan, Tegal 7 MTsN Bangkalan, Bangkalan 8 MTsN Babat, Lamongan 9 MTsN Trenggalek, Trenggalek 10 MTsN Talang Padang, South Lampung 11 MTsN Kuripan, West Lombok 12 MTsN Praya, Central Lombok 13 MTsN Selong, East Lombok 14 MTsN Martapura, Banjar 15 MTsN Amuntai, North Hulu Sungai C. Centers for Science and Mathematics 1 Diklat Propinsi DKI, Jakarta 2 Diklat Propinsi Jawa Barat, Bandung 3 Diklat Propinsi Jawa Timur, Surabaya
DKI= daerah khusus ibukota; MIN = madrasah ibtidaiyah negeri ; MTsN =madrasah tsanawiyah negeri
PROJECT FRAMEWORK
Design Summary Targets Achievements Important Assumptions
1. Sector and/or Area Goals
To support the Government’s efforts to improve quality basic education and educational opportunities for all school-age children within the context of the Government’s policy to expand universal basic education up to grade nine by 2010
To strengthen the contribution of the Ministry of Religious Affairs (MORA) to the Government’s basic education quality, equity, and access objectives
The Project strengthened MORA and madrasah education system capabilities to contribute to improving access to and, quality and equity of basic education. A benefit monitoring evaluation (BME) survey conducted at the end of the Project showed an increase in enrollment and improvements in educational quality for madrasahs. The quality increase was indicated by an improvement in madrasah pupils’ achievement scores on the national examination.
Ongoing government commitment to the achievement of universal basic education targets
2. Objectives/Proposed
2.1 To improve the quality of basic education
To improve the quality of primary and junior secondary schools under MORA (so that they achieve the same standards as those under the Ministry of National Education and effectively perform their crucial role in providing education on a sustainable basis)
A BME survey showed the narrowing of the gap between the average national examination scores of madrasah pupils in project areas and students in their counterpart schools under the Ministry of National Education (MONE). The physical facilities and availability of instructional resources per pupil also improved. However, in overall terms, the educational inputs and standards of madrasahs still remain lower than those of schools under MONE, but gradual improvements continue to take place.
Ongoing government commitment to allocation of resources required to support quality improvement in schools under MORA
2.2 To promote equitable access to basic education
To provide equitable basic education opportunities to all school-age children, especially to the poor and girls
The Project increased the opportunities of access to more equitable basic education for the children from poor families, especially females living in rural and underserved urban areas.
Ongoing government commitment to the achievement of universal basic education targets
16 Appendix 2
Design Summary Targets Achievements Important Assumptions 2.3 To strengthen the institutional
framework To improve the capability of institutions involved in the development, regulation, and management of basic education under MORA
The capability of institutions involved in development, regulation, and management of madrasah basic education (i.e., concerned MORA offices and madrasah yayasans) improved as a result of training and the provision of other project inputs.
Ongoing government commitment to the allocation of the resources required to support quality improvement in schools under MORA.
3. Project Components and Outputs 3.1 Improving Quality of Basic Education
3.1.1. Process of socialization of the 1994 curriculum within the MORA system supported
Administrators, inspectors, supervisors, and principals within the MORA system trained to provide adequate support to the implementation of the 1994 curriculum
About 18,336 principals, inspectors, and administrators of madrasahs under MORA attended workshops on the socialization of the 1994 curriculum and its effective implementation in madrasahs.
MORA education staff available for training and committed to implement the 1994 curriculum
3.1.2. Instruments to improve the effectiveness of teachers’ delivery of the 1994 curriculum and active learning methodologies in MORA schools developed
Teacher handbooks and support materials for MIs and MTs developed by MORA and MONE curriculum experts using facilities available at MONE’s Center for Book Development and Active Learning
Teacher guidelines and handbooks and student active learning modules on core subjects were developed. Teacher handbooks (286,43) and supplementary learning modules (194,495) were distributed to all project madrasahs, and these handbooks and modules had a positive impact on the teaching and learning processes.
Cooperation between MORA and MONE, socialization of the 1994 curriculum among MORA schools, willingness of schools to pilot active learning instruments
3.1.3. Teaching quality improved Training in core curriculum subjects (4,760 teachers from MIs and 6,103 teachers from MTs), seconding of teachers (542) from primary schools and teachers (471) from junior secondary school to private MIs and MTs , mapping of teachers (completed by 1997), and refurbishing and upgrading of teacher training center under MORA
MI teachers (8,543) and MTs teachers (11,354) were provided 1.5 months of in-service training in core curriculum subjects. In addition 3,982 teachers completed a 1-year teacher certification program, and the qualifications of another 5,560 teachers were upgraded. About 948 teachers seconded to private madrasahs were also provided training. A teacher mapping study was conducted during the beginning of the Project, but teacher reallocation (on the basis of the results) could not materialize because of the private nature of Madrasah
Teachers available for upgrading and willing to attend training programs without disrupting schooling and timely and predictable deployment of suitably qualified teachers for seconding
Appendix 2 17
Design Summary Targets Achievements Important Assumptions ownership (in most cases). Science and mathematics education centers were
established at MORA’s centers for education and training at Surabaya, Bandung, and Jakarta.
3.1.4 Educational resources enhanced MI classrooms (1,547) upgraded to support active learning activities, MI and MTs libraries (1,387) upgraded, science laboratories (383) and language laboratories (23) developed in MTs, core subject textbooks (497,600) and teacher handbooks (24,200) provided to MIs and MTs , distance learning modules (49,000) distributed to MIs and MTs to supplement teacher recommended textbooks, MI librarians (950) and teacher librarians (502) trained, and science laboratory technicians (413) and language laboratory technicians (53) trained
1,788 classrooms, 1005 libraries, 19 language laboratories, 485 science laboratories, and 32 computer laboratories were constructed and/or developed. About 3.1 million textbooks, 286,430 teacher handbooks, 194,495 supplementary learning modules, and 1,787 sets of library books were provided to MIs and MTs . About 3,100 teacher librarians, 766 science laboratory technicians, and 53 language laboratory technicians were trained.
Teachers available to teach core subjects (with the emphasis on science and mathematics); schools able to use more effectively and maintain libraries and laboratories and instructional materials; community willing to provide in-kind support (i.e., voluntary labor) for minor rehabilitation works; and staff (library and laboratory) available for training
3.1.5 Model schools and common learning resource facilities developed for continuing in-service training of teachers
Existing public MIs (22) and public MTs (15) with common learning resource centers upgraded to model schools to assume leadership role in their areas
Twenty-four existing MIs and 15 MTs were upgraded to model madrasahs. Fifteen Common Learning Resources Centers (CLRCs), one with each model MTs, were also established. At the time of Project Completion Report Mission visits, model MTs were assuming a leadership role to improve the quality of other madrasahs under the Principals Association and Teachers Association. Eighty model madrasah principals and education officersparticipated in a comparative study tour to Singapore and Malaysia. Master Teachers(141) of model madrasahs completed 1 year of training in Australia and Malaysia.
Suitable land for the development of model MIs and MTs is available and proper coordination mechanisms for the use of services of model MIs and MTs by neighboring schools are established
3.1.6.School management supervision and accreditation improved
Training of school principals (4,330) and administrative staff members (1,000) of project MIs and MTs in school management; training of MI inspectors (2,820) and MTs
Seven thousand five hundred and thirty-five principals and 7,789 administration and finance officers from madrasahs, yayasans, and pesantrens were trained in school management and financial
Timely and effective training of principals and school administration staff, active commitment of yayasans to improve school financial
18 Appendix 2
Design Summary Targets Achievements Important Assumptions supervisors in academic supervision in
core subjects; training of MORA accreditation staff members (52) in school accreditation, and development of management instruments and manuals to guide day-to-day school management, supervision, and accreditation
administration, and 5,489 inspectors and 1,048 members of prospective accreditation committees were trained in academic supervision and accreditation, respectively. Manuals for madrasah management and financial administration were developed and used during the training. Manuals and instruments were also developed for accreditation and supervision.
management, and adequate availability on a regular basis of qualified MORA staff for training and follow-up implementation of supervision and accreditation activities
3.2 Promoting Equitable Access to Basic Education
3.2.1 Improved madrasah ibtidaiyah (MI) and madrasah tsanawiyah (MTs) school facilities and expanded school capacity in project schools to support greater student enrollment in view of the Government’s policy for universal basic education
Rehabilitation and upgrading of 4,572 dilapidated MI and MTs classrooms and construction of 159 new classrooms in MIs and 183 new classrooms in MTs in project areas
One thousand two hundred and fourteen dilapidated MI and MTs classrooms were rehabilitated and 1,788 new MI and MTs classrooms were built in the Project’s areas to increase educational access and support the Government’s policy of universal 9-year basic education.
Willingness of the school community to provide in-kind support (i.e., voluntary labor) for minor construction and rehabilitation works
3.2.2 Increased access to basic education for needy students and reduced drop-out rates for students facing financial difficulties
Provide free access to basic education through grant-in-aid scheme for 28,000 children (60% of which are females) from lower income households
In view of the wider negative impact of the 1997 economic crisis on low income families, the scope of the stipend program was enlarged nationwide under a multisource-funded social safety net program. The stipend program of this project was, therefore, transferred to a social safety net program after the first year.
MORA’s timely and effective implementation and monitoring of operations guidelines and selection criteria and a transparent student selection process and adequate financial controls
3.3 Strengthening the Institutional Framework
3.3.1 Improved and expanded capacity at all MORA administrative levels to meet responsibilities relative to policy formulation and planning, regulating, and monitoring education activities
Training for 803 MORA educational staff members in educational planning and policy development and finance, education, and administration; training for 438 MORA educational staff members in project planning and preparation; developing an education management information system (EMIS) in MORA and training for 1,512
Under the in-country staff development program, 420 MORA education officers from the central and provincial offices were trained in educational planning, management, and finance. Three MORA officials completed master’s degrees, while 41 officials underwent intensive training in English. Moreover, 1,240 EMIS operators received training in
Suitably qualified staff members available for training and willingness of MONE and MORA to work as partners.
Appendix 2 19
Design Summary Targets Achievements Important Assumptions staff members in its use; and
establishing a framework for MONE and MORA cooperation in formulating and implementing education policy
computer skills. Under the overseas trainings program, eight MORA officials completed master’s degrees from foreign universities, but the doctoral program was canceled due to a lack of qualified candidates. One hundred and thirty-eight eligible MORA personnel received short-term foreign training in policy development and project implementation as well as planning, finance, and EMIS.
3.3.2 Rationalized school coverage for basic education under MORA
Detailed school mapping and study on consolidation of small madrasahs completed by 1997 and study on the role of pesantrens in the delivery of basic education completed by 1998
To rationalize the coverage of access to basic education, two studies were conducted: one on school mapping, with the objective of consolidating small madrasahs, and the other on the role of pesantrens in the delivery of basic education. However, the results of the school mapping study could not be fully used, mainly because about 90% of madrasahs and all pesantrens are private community-based institutions. For this reason, the Government has very limited control over these institutions and provides them with limited financing. The consolidation and merger of small madrasahs, or decisions regarding the location of new madrasahs, therefore, cannot be influenced by MORA.
Policy guidance from MORA and coordination between MONE and MORA
3.3.3 Strengthened madrasah support institutions
Training of 200 pesantren and 500 yayasan officials in education management and the participation of 300 representatives of parent associations in project areas in workshops on community mobilization
Administration officers of madrasahs and yayasans and eligible pesantrens from the Project’s districts attended in-service training in school administration, school financing, and community resources mobilization. Thirty subdistrict-level workshops—attended by 6,380 madrasah parent-teacher association representatives and local community leaders—were held in the Project’s districts, with one policy-level national workshop held in Jakarta.
Community of yayasans and pesantrens and parent associations to support schools in their areas and yayasan and pesantren representatives and parent association representatives available for training
20 Appendix 2
Design Summary Targets Achievements Important Assumptions 4.
Activities and/or Inputs
4.1 Improving Quality of Basic Education
4.1.1 Socialization of Curriculum 1994 Workshops and/or seminars About 18,336 principals, inspectors, supervisors, and administrators attended workshops on the socialization of the 1994 curriculum that were held in all 27 provinces of Indonesia.
Extension of social awareness campaign coverage by MORA
4.1.2 Development of instruments to improve effectiveness of teachers’ delivery of 1994 curriculum methodology
Instruments for effective implementation of 1994 curriculum
- Teacher handbooks (or teacher guides) were developed for core subjects, and 286,430 copies were distributed to madrasahs. Supplementary student active learning modules were developed on selected topics in core subjects, and 194,485 copies were distributed to MIs and MTs .
Cooperation between MORA and MONE and timely recruitment of specialists
- Specialist service - 22.42 person-months of international consulting services by specialists in student active learning were provided.
4.1.3 Training and seconding of teachers
- Teacher development - Educational qualifications of 5,560 teachers were upgraded. Exactly 3,982 teachers completed a 1-year teacher certification program, and 19,897 teachers attended in-service training in content and methodology.
Timely provision and effective use of project inputs and timely recruitment of specialists
- Specialist service - 21.00 person-months of international teacher management and retraining specialist services and 17.58 person-months of domestic consulting services in teacher training were used.
- Studies - A study on teacher mapping was conducted for need-based reallocation of teachers.
Appendix 2 21
Design Summary Targets Achievements Important Assumptions - Instructional materials
- Teacher handbooks and guidelines
on the 1994 curriculum were developed and distributed to madrasahs.
- Civil works - Three centers for science and mathematics education were established at MORA’s centers for education and training at Surabaya, Bandung, and Jakarta.
4.1.4 Improve educational resources - Civil works - Forty teachers’ rooms, 1,005 school libraries, 485 science laboratories, 32 computer laboratories, 19 language laboratories, and 217 dormitory units were constructed in public madrasahs, model madrasahs, and CLRCs.
Instructional materials distributed, relevant guidelines for facilities improvement effectively implemented, and suitable staff available for training
- Furniture and equipment - All of the newly constructed facilities were furnished and supplied with relevant equipment, including science equipment, computer units, and language laboratory equipment.
- Instructional materials About 3.0 million individual textbooks, 1,787 sets of library books, and 194,495 supplementary learning modules were provided to MIs and MTs in the Project’s areas.
- Local training In-country training was provided to a total of about 29,439 teachers, 7,535 principals, 7,789 administrators and finance officials, 1,048 members of accreditation committees, and 5,489 supervisors and inspectors. Moreover, about 3,100 teacher librarians, 766 science laboratory technicians, and 53 language laboratory technicians were trained.
4.1.5 Upgrade schools into model schools and develop CLRCs
- Civil works - Twenty-four MIs and 15 MTs were upgraded as model madrasahs and 15 CLRCs were established adjacent to model MTs for continuing teacher and principal professional development activities
22 Appendix 2
Design Summary Targets Achievements Important Assumptions
- Furniture and equipment - Instructional materials
- All model madrasahs and CLRCs were provided with physical facilities (buildings) and equipment (including science, language, and computer laboratories).Their principals and master teachers were provided both in-country and overseas training.
- All model madrasahs and CLRCs were provided adequate numbers of textbooks, learning modules, teacher guides, supplementary instructional materials, and reference books from teachers.
- International consulting services totaling 22.42 person-months on model school and CLRC development and domestic consulting services totaling 24 person-months on model school and CLRC operations were used.
Availability of land, distribution of instructional materials, and recruitment of specialists
4.1.6 Support school management supervision and accreditation activities
- Specialist services - Local training
- Services of school and finance administration specialists-cum-team leaders totaling 47.58 person-months were provided. Services of academic supervision and accreditation specialists (international) totaling 18.00 person-months were provided. And services of subject-matter supervision specialists (domestic) in five core subjects (physics, mathematics, biology, English, and Bahasa Indonesia) totaling 122.54 person-months were provided.
- 7,535 school principals, 7,789 school
administration and finance officers, 5,489 school supervisors and inspectors, and 1,048 prospective accreditation committee members received in-country training in their respective fields.
Suitable staff available for training and staff production and use of manuals
Appendix 2 23
Design Summary Targets Achievements Important Assumptions - Equipment
- Operational support
- Forty-three motor vans and 450 motorcycles were provided for effective management and supervision of madrasahs by MORA education officers from the central and provincial offices.
Operating budget was provided for meeting the cost of management, supervision, and accreditation
4.2. Promoting Equitable Access to Basic Education
4.2.1 Rehabilitation and/or construction of classroom
- Civil Works - Assistance Scheme for Facilities
Improvement (ASFI) program - Furniture
- 1,241 dilapidated classrooms were rehabilitated.
- 1,788 new classroom were
constructed and 485 science laboratories, 217 student dormitories, and 677 sanitary facilities were constructed or developed under the ASFI program.
- Furniture was provided to 1,029 madrasah classrooms, 663 madrasah libraries, 312 science laboratories, and 237 student dormitories under the ASFI program.
Effectively implemented guidelines for facilities improvement program
4.2.2 Provision of grant-in-aid- assistance to needy students
Education Services Contracting program. Children from lower income households to be provided free access to basic education through stipends scheme.
In the first year 5,854 poor students were provided stipends. After the first year, the program was transferred to the National Social Safety Net Program implemented under the national development planning agency.
Effectively implemented guidelines for selection process.
4.3.Strengthening the Institutional Framework
4.3.1 Training of MORA education staff
Overseas fellowship and local training
Under in-country staff development program, 420 MORA education officials attended training on educational management, planning, and finance.
Suitable staff available for training
24 Appendix 2
Design Summary Targets Achievements Important Assumptions
Three officials completed master’s degrees, 42 attended an intensive English language training program, and 75 attended project administrative training. Under an overseas staff development program, 8 MORA officials received master’s degrees in educational policy development planning and management from Australian universities and 138 officials attended short-term in-service training in various areas relating to educational policy development, planning management, and accreditation and project implementation. In addition, 18 personnel from MORA’s centers for educational training underwent 1 year of overseas training in relevant fields.
4.3.2. Development of EMIS - Equipment
- 582 computers and related accessories were provided for EMIS activities at the central and province levels in selected districts.
Timely recruitment of specialists, suitable staff available for training, and MORA EMIS compatible with MONE EMIS
- Specialist services - Operational support - Overseas fellowships and local
training
- The services of educational management information specialists (international) totaling 48 person-months and 48 person-months of services of database establishment and operations specialists (domestic) were provided.
- Operational support was provided in the recruitment of full-time computer operators, the establishment of an operational budget for data collection and processing, and the training of 1,240 field officials in completing data questionnaires.
- Twenty-five EMIS personnel attended
short-term overseas training, while 1,240 computer operators attended local training.
Appendix 2 25
Design Summary Targets Achievements Important Assumptions 4.3.3 Strengthen cooperation between
MORA and MONE Workshops and seminars Periodic meetings and policy-level
workshops and seminars were held throughout the Project’s implementation period, to maximize cooperation and collaboration between MORA and, on effective implementation of the 1994 national curriculum, madrasahs in educational policy formulation, especially the policy on decentralization introduced under the new acts.
Effective guidance from the national development planning agency
4.3.4 Undertake school mapping survey and review the role of pesantrens in basic education
Studies Survey studies were conducted on schools mapping and teacher mapping and the role of pesantrens in the provision of basic education. In addition, two BME survey studies were conducted, one in the middle of the Project and the other before its end.
Accuracy of existing data
4.3.5 Training of pesantren and yayasan representatives and representatives of parent associations
- Local training - Workshops and seminars
Administration officers of madrasahs, yayasans, and pesantrens from the Project’s districts attended in-service training in school administration and financing and community resources mobilization. Thirty subdistrict level workshops attended by 6,380 representatives of madrasah parent-teacher associations and local community leaders were held in the Project’s districts, with one policy-level national workshop held in Jakarta
Availability for training of representatives of yayasans and pesantrens and representatives of parent associations
26 Appendix 2
Appendix 3
27
SCHOOL ENROLLMENT
Table A3.1: Enrollment of Madrasah Ibtidaiyah Project Districts No. Province and/or
District Students Enrollment Completion
(2001–2002) Public Private M F Total M F Total West Java
1 Lebak 128 124 252 10,434 11,113 21,547 2 Serang 314 367 681 7,994 8,006 16,000 3 Pandeglang 188 198 386 9,896 11,285 21,181
Central Java 4 Brebes 992 1,067 2,059 20,306 20,316 40,622 5 Kebumen 686 674 1,360 7,250 6,795 14,045 6 Tegal 396 341 737 11,822 11,500 23,322
East Java 7 Bangkalan 289 256 545 6,587 6,585 13,172 8 Lamongan 275 288 563 34,260 34,364 68,624 9 Trenggalek 135 150 285 5,637 5,192 10,829
Lampung 10 South Lampung 649 573 1,222 9,343 9,396 18,739
West Nusa Tenggara 11 West Lombok 215 225 440 4,952 4,715 9,667 12 Central Lombok 374 369 743 8,024 8,058 16,082 13 East Lombok 103 86 189 10,546 10,111 20,657
South Kalimantan 14 Banjar 1,735 1,665 3,400 8,846 8,419 17,265 15 North Hulu Sungai 2,631 2,483 5,114 4,942 4,917 9,859
TOTAL 9,875 9,706 19,581 168,081 167,858 335,939 F = female; M = male; No. = number.
Table A3.2: Enrollment of Madrasah Tsanawiyah Project Districts No. Province and/or
District Students Enrollment Completion
(2001–2002) Public Private M F Total M F Total West Java
1 Lebak 527 722 1,249 3,364 3,518 6,882 2 Serang 1,658 1,873 3,351 9,619 10,195 19,814 3 Pandeglang 1,428 1,864 3,292 5,104 5,768 10,872
Central Java 4 Brebes 1,518 1,544 3,062 9,210 9,522 18,732 5 Kebumen 4,020 4,138 8,158 6,031 5,800 11,831 6 Tegal 1,448 1,592 3,040 8,175 7,961 16,136
East Java 7 Bangkalan 368 381 749 2,997 2,421 5,418 8 Lamongan 891 1,021 1,912 10,635 12,025 22,660 9 Trenggalek 1,406 1,577 2,983 957 869 1,826
Lampung 10 South Lampung 1,174 1,282 2,456 6,830 7,415 14,245
West Nusa Tenggara 11 West Lombok 281 226 507 6,659 5,734 12,393 12 Central Lombok 866 967 1,833 7,403 7,500 14,903 13 East Lombok 602 629 1,231 10,111 11,131 21,242
South Kalimantan 14 Banjar 1,211 1,374 2,585 2,101 2,320 4,421 15 North Hulu Sungai 1,535 1,790 3,325 2,154 2,045 4,199 TOTAL 21,011 23,430 44,441 100,674 103,947 204,621 F = female; M = male; No. = number.
Appendix 4
28
LOAN DISBURSEMENTS ($ million)
Year Quarter Actual
Disbursement Actual
Cumulative Percentage of Actual
Disbursement
1996
IV
1.516 1.516
2.64
1997
I II III IV
0.000 0.086 0.212 0.132
1.516 1.602 1.814 1.946
0.00 0.15 0.37 0.23
1998
I II III IV
1.166 1.478 0.347 0.603
3.112 4.590 4.937 5.540
2.03 2.57 0.60 1.05
1999
I II III IV
0.801 2.975 1.028 7.786
6.341 9.316 10.344 18.130
1.39 5.17 1.79 13.54
2000
I II III IV
1.182 6.821 1.448 1.488
19.312 26.133 27.581 29.069
2.06 11.96 2.52 2.59
2001
I II III IV
3.160 5.895 3.833 5.807
32.229 38.124 41.957 47.764
5.49 10.25 6.66 10,10
2002
I II III
3.876 5.336 0.541
51.640 56.976 57.517
6.74 9.28 0.94
Total
57.517
57.517
100
Appendix 5
29
PROJECT IMPLEMENTATION SCHEDULE: ORIGINAL VERSUS ACTUAL
Year and Quarter of Implementation Project Inputs (1) 1 2 3 4 5
3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1 2 3 4 1
Teacher Seconding Preparatory Activity Implementation
Teacher and Staff Development Preparatory In-country Overseas
Instructional Materials Tendering and Contract Awards Delivery
Specialist Services Preparation of Long List and Evaluation Criteria Preparation of Short List Finalization of Invitation Letters Contract Award Specialists Fielded
Studies
School Mapping and Consolidation of Small Madrasahs
Teacher Mapping Basic Education in Pesantrens
Civil Works Work Schedules Prepared Tendering and Contract Award Actual Activity
Furniture and Equipment Inventory Tendering and Contract Award Delivery
Special Program Assistance Scheme for Facilities Improvement Grant-in-Aid to Disadvantaged Students
Appendix 5
30
Preparation Activity Implementation Evaluation
Project Implementation and Management Selection of Project Implementation Staff Project Socialization Training of Project Implementation Staff BME Periodic Surveys Midterm Review Project Completion Report
Original Actual
Appendix 6
31
LOAN COVENANTS
Reference in Agreement
Loan Covenants
Status of Compliance
Loan Agreement Section 4.03 (b)
1. The Borrower shall cause the Project to be carried out in accordance with plans, designs, standards, and specifications and work schedules and construction methods acceptable to the Borrower and the Asian Development Bank (ADB). The Borrower shall furnish or cause to be furnished to ADB, promptly after their preparation, such plans, designs, standards, and specifications and work schedules and any material modifications subsequently made therein in such detail as ADB shall reasonably request.
Complied with
Loan Agreement Section 4.06(a)
2. The Borrower shall 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; disclose the use thereof in the Project; record the progress of the Project (including the cost thereof); and reflect, in accordance with consistent maintenance and sound accounting principles, the operating and financial condition of the agencies of the Borrower and pesantrens and madrasahs receiving assistance under the Project that are responsible for carrying out the Project and the operation of project facilities or any part thereof.
Complied with
Loan Agreement Section 4.06(b)
3. The Borrower shall (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 the auditing of such accounts and financial statements 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 accounts and financial statements and the audit thereof as ADB shall from time to time reasonably request.
Complied with
Loan Agreement Section 4.07(a)
4. The Borrower shall furnish or cause to be furnished to ADB all such reports and information as ADB shall reasonably request
Complied with
Appendix 6
32
Reference in Agreement
Loan Covenants
Status of Compliance
concerning (i) the Loan and the expenditure of the proceeds and maintenance of the services thereof; (ii) the goods and services and other items of expenditure financed out of the proceeds of the Loan; (iii) the Project; (iv) the administrative, operations, and financial condition of the agencies of the Borrower and the pesantrens and madrasahs receiving assistance under the Project that are responsible for carrying out the Project and operation of project facilities or any part thereof; (v) the 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.
Loan Agreement Section 4.07(b)
5. Without limiting the generality of the foregoing, the Borrower shall furnish or cause to be furnished to ADB quarterly reports on the carrying out of the Project and on the operation and management of project facilities. Such reports shall be submitted by the Directorate General of Islamic Institutions Development (DGIID) in such a period as ADB shall reasonably request and shall 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 proposed programs of activities and expected progress during the following quarter.
Complied with
Loan Agreement Section 4.07 (c)
6. Promptly after physical completion of the Project but in any event not later than 3 months thereafter or such later date as may be agreed for this purpose between the Borrower and ADB, the Borrow shall ensure that DGIID prepares and furnishes to ADB a report, in such form and in such detail as ADB shall reasonably request, 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.
Complied with (although compliance was delayed)
Loan Agreement Section 4.10.(b)
7. The provision of paragraph (a) of this Section shall 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 its date.
Complied with
Loan Account Withdrawal Conditions
Appendix 6
33
Reference in Agreement
Loan Covenants
Status of Compliance
Loan Agreement Schedule 3 Para. 9
8. Withdrawals shall be made from the Loan Account in relation to a contract for construction of a model madrasah ibtidaiyah (MI) or madrasah tsanawiyah (MTs) in a public madrasah to be provided under the Project only after the Borrower has certified to ADB that the Borrower holds the Right of Ownership (Hak Milik) for the land to be provided for the construction of the model MI or MTs and that such right is unencumbered.
Complied with
Project Executing Agency
Loan Agreement Schedule 3 Para. 1
9. DGIID shall be responsible for overall execution of the Project and for policy-level coordination as the Project Executing Agency. The Directorate of Islamic Schools Development (DISD) shall be responsible for coordination and implementation of project activities.
Complied with
Project Steering Committee
Loan Agreement Schedule 6 Para. 2
10. Within 3 months after the Effective Date, a project steering committee (PSC) shall be established by DGIID. This PSC shall be chaired by the Director-General, DGIID. The Director, DISD shall be the secretary of the PSC. The other members of the PSC shall include representatives of Badan Perencanaan Pembangunan Nasional (BAPPENAS); the Ministry of Finance; MOHA; MONE; the Ministry of Administrative Reforms; and the Ministry of Religious Affairs (MORA), including BALIT-BANG and other offices, as appropriate. The PSC shall be responsible for coordination of the Project and other related projects assisted by ADB and other agencies. The PSC shall also monitor progress and problems in Project implementation. The PSC shall meet at least once every 6 months and as required.
Complied with
Project Management Loan Agreement Schedule 6 Para. 3
11. Within 1 month after the Effective Date, DGIID shall appoint a full time project manager (the Project Manager) acceptable to ADB who shall be responsible for managing the day-to-day implementation activities of the Project.
Complied with
Central Project Implementation Unit
Loan agreement Schedule 6
12. Within 1 month after the Effective Date, the Borrower shall establish a Central
Complied with
Appendix 6
34
Reference in Agreement
Loan Covenants
Status of Compliance
Para. 4 Project Implementation Unit (CPIU) within DISD to implement Project activities at the national level and coordinate the activities of provincial project implementation units (PPIUs), including administration of the domestic and overseas training programs provided under the Project. The CPIU shall be headed by the Project Manager and shall be supported by an adequate number of appropriately trained technical and clerical staff members. The Borrower shall ensure that a representative from the Ministry of National Education (MONE) is included in the deliberations of the CPIU on matters relating to project activities also affecting MONE.
Provincial Project Implementation Units
Loan Agreement Schedule 6 Para. 5
13. The Borrower shall ensure that the PPIU in each project province established under the ADB-assisted Junior Secondary Education Project (Loan No. 1194-INO) serves as the PPIU to implement project activities at the provincial level. The PPIUs shall consult with the Provincial Advisory Committee (PAC) established under the Project and cooperate with the local project coordinators from the district offices of MORA. Each PPIU shall be supported by an adequate number of appropriately trained technical and clerical staff. The Borrower shall ensure that a representative from MONE is included in the deliberations of each PPIU on matters relating to project activities also affecting MONE.
Complied with
Provincial Advisory Committee
Loan Agreement Schedule 6 Para. 6
14. Within 3 months after the Effective Date, the Borrower shall establish a PAC in each project province to provide a channel of communication between the Project’s staff in the PPIU and the local communities. The PAC shall be chaired by the head of the provincial office of MORA or designates and representatives of the provincial offices of MONEH, BAPPENAS, and MORA. The PAC shall 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 MORA on Project implementation activities.
Complied with However, compliance was delayed because of the Project’s slow start, due to the 1997 economic crisis. The PACs were established in September 1998 in each of the six project provinces, and their meetings were held regularly.
District Advisory Committee
Loan Agreement Schedule 6
15. Within 3 months after the Effective Date, the Borrower shall establish a District
Complied with
Appendix 6
35
Reference in Agreement
Loan Covenants
Status of Compliance
Para. 7 Advisory Council (DAC) in each district within the Project’s area to provide a channel of communication between the Project’s staff in the PPIU and the local communities. Each DAC shall be chaired by the head of the district office of MORA, and its other members shall include the local project coordinator from the district office of MORA concerned and the yayasans concerned. The DAC shall be responsible for providing operational guidance to the local project coordinators on the day-to-day implementation of project activities.
However, the compliance was delayed because of the Project’s slow start, due to the 1997 economic crisis. The DACs were established in September 1998 in each district. Subsequently, the DACs held regular meetings and performed their designated responsibilities satisfactorily.
Education Services Contracting Committee
Loan Agreement Schedule 6 Para. 10
16. DGIID shall carry out the Education Services Contracting Program through CPIUs and PPIUs, in the accordance with arrangements acceptable to ADB. These arrangements shall 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, PPIUs shall be responsible for setting up an ESC committee in each school assisted under the Project.
No longer applicable The program was replaced with the National Social Safety Net (Back-to-School) Program that covered assistance to madrasah students as well.
Loan Agreement Schedule 6 Para. 11
16. (a) Each ESC committee shall consist of the school principal, a representative of the parents’ association of the school, and the yayasan concerned. The ESC committee shall include a PPIU representative when required to participate in its deliberations. 16. (b) The Borrower shall try to ensure that all eligible students, as determined by ESC committees, are provided with assistance under the ESC Program. The Borrower shall give preference to female students eligible for assistance under the ESC Program and shall achieve at least an overall female to male ratio of 60 : 40 among the assisted students.
No longer applicable Responsibility was shifted to the National Social Safety Net (Back-to-School) Program.
Loan Agreement Schedule 6 Para. 12
17. (a) Within 3 months after the Effective Date, DGIID shall submit to ADB for its approval a plan for training activities to be carried out under the Project. The plan shall include the objectives of and criteria for selection of candidates for each staff development activity and subject areas of training and venues of training. The CPIU shall 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
Complied with
Appendix 6
36
Reference in Agreement
Loan Covenants
Status of Compliance
fellowships.
17. (b) DGIID shall 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 the completion of such training.
Complied with All recipients sent for overseas training signed contracts to serve in a capacity relevant to their training for at least twice the period of their training plus 1 year (according to the standard obligation formula of the Government). The Director General, DGIID issued a letter of instruction for the placement of graduates of overseas training programs in positions relevant to their training. Although some placement difficulties existed, most of the overseas training graduates are working in positions relevant to their training.
Training Category 1. In-service training of (MI) teachers 2. In-service training of MTs teachers 3. In-service training of MI principals 4.In-service training of MTs principals 5.Training of administration and finance officers 6.MI teacher certification program
17. (c) The Borrower shall ensure that measures acceptable to ADB are taken during project implementation to increase the number of places allocated for females in the education system for staff and teacher training.
Partly complied with Females comprise far less than 50% of all teachers, principals, and officials of MORA. Despite the given low proportion of female employees in the madrasah education system, DGIID tries to increase the share of females in new positions and in various project training programs. For example, during FY2000, the proportion of female participants in most training programs was higher than their proportion in total staff strength. The percentage of females in the total staff and in training programs follows: Percentage of Percentage of Females in the Females in Total Staff Training Programs 43.2% 50.3% 24.5% 30.3% 8.5% 24.1% 4.3% 13.7% — 39.0% 43.2% 51.9%
Appendix 6
37
Reference in Agreement
Loan Covenants
Status of Compliance
7.MTs teacher certification program 8. Teacher diploma D2 program 9. Teacher diploma D3 program
24.5% 42.8% 43.2% 49.1% 24.5% 38.0% The ratio of training places for females was increased further in relation to their share in total staff strength during FY2001 training programs.
Guidelines on Management and Operation and Maintenance of Model MIs and MTs
Loan Agreement Schedule 6 Para. 13
18. Within 6 months after the Effective Date, DGIID shall submit to ADB guidelines satisfactory to ADB relating to management and operation and maintenance of the model MIs and MTs to be constructed under the Project.
Partly complied with Manuals for school-based management and financial operations, prepared by consultants were disseminated to madrasahs and used in training programs for principals and supervisors. The management and operation and maintenance of model MI and MTs facilities were conducted satisfactorily with the support of funds allocated by the Government and generated through the BP3(contribution by parents) and parent-teacher association communities. The Kanwil and Kandepag have been requested to provide enough funds in their routine and development budget for the operation and maintenance of model madrasahs and CLRC attached to them.
Budget Allocations
Loan Agreement Schedule 6 Para 14
19. Without limiting the generality of the provisions of Section 4.02 of this Loan Agreement, the Borrower shall provide the necessary budget allocation promptly as needed to meet the incremental recurrent costs of the Project, both during and after Project implementation.
Complied with (although compliance was delayed) Necessary counterpart funding was provided for the Project’s activities during the latter part of project implementation.
Support to Private MIs and MTs
Loan Agreement Schedule 6 Para 15
20. Project implementation shall support the sustainability of private MIs and MTs through the application of a transparent and predicable mechanism that shall be based on eligibility criteria relating to (i) potential for expansion (indicators shall include school location, exiting student enrollment levels, and basic education in student catchment area); (ii) good management
Complied with
Appendix 6
38
Reference in Agreement
Loan Covenants
Status of Compliance
(indicators shall include full-time teachers, well maintained facilities and premises, and adequate administrative and financial records); and (iii) the willingness of the local community served by the private MIs or MTs to actively participate in project activities.
Loan Agreement Schedule 6 Para 16
21. The Borrower shall continue to provide assistance to MIs and MTs assisted under the Project in less developed rural communities after the Project has been completed, until adequate educational quality and the viability of such MIs and MTs are ensured.
Complied with DGIID is committed to providing continued assistance as agreed.
Conversion of Private Madrasahs into Public Madrasahs
Loan Agreement Schedule 6 Para 17
22. The Borrower shall ensure that MORA converts private madrasahs into public madrasahs only to establish model schools in those districts where public madrasahs do not exist. To this end, MORA shall (i) review the requirements for model MIs and MTs in each district nationwide based on criteria agreed upon between the Borrower and ADB and identify those private MIs and MTs that could be used as model schools according to the criteria and submit its findings to ADB within 3 months after the Effective Date and (ii) prepare a plan for the gradual implementation of MORA’s model school strategy, including the phasing for the conversion (and subsequent upgrading to model schools) of the identified private schools and submit this plan to ADB within 6 months after the Effective Date. The Borrower shall ensure that upon completion of the process herein outlined, no further conversion of private schools will be undertaken.
Complied with No private madrasah was converted to a public madrasah during project implementation.
Upgrading of Branch Madrasahs
Loan Agreement Schedule 6 Para 18
23. The Borrower shall ensure that MORA (i) prepares a plan for the rationalization of the branch madrasah system and gradual upgrading of branch madrasahs and submits this plan to ADB for its comments within 3 months after the Effective Date and (ii) completes the upgrading of branch madrasahs within 4 years after the Effective Date.
No longer applicable The school mapping study was completed and published. However, expectations for the rationalization of school systems are difficult to implement due to private ownership of madrasahs.
Testing Staff Vacancies within DISD
Loan Agreement Schedule 6 Para 19
24. Within 2 years after the Effective Date, MORA shall fill all existing staff vacancies in DISD through redeployment of suitably
Complied with Staffing allocations to DISD were improved during project
Appendix 6
39
Reference in Agreement
Loan Covenants
Status of Compliance
qualified staff within MORA or recruitment of suitably qualified additional staff.
implementation, despite limited human resources in MORA.
Supervisors and MI Inspectors
Loan Agreement Schedule 6 Para 20
25. To ensure effective inspection of schools, MORA shall ensure that the number of MTs supervisors is adequate. MORA shall also ensure that the appointment of all MI inspectors and MTs supervisors is based on qualification and merit.
Partly complied with Additional supervisors and inspectors were appointed, but the number is still not adequate.
Redeployment of Teachers
Loan Agreement Schedule 6 Para. 21
26. Prior to the provision of seconded teachers to schools assisted under the Project, MORA shall assess the number of existing teachers seconded in these schools under ongoing assistance from the Borrower. MORA shall ensure that there is optimum use of these existing seconded teachers and the seconded teachers provided under the Project by (i) redeploying excess teachers in schools where the student to teacher ratio is lower than 1 : 25 for MIs and 1 : 15 for MTs to schools where the corresponding student to teacher ratio is higher and (ii) redistributing excess teachers with the same subject specialization in one school to other project-assisted schools.
No longer applicable No excess teachers exist. Therefore, redeployment is not possible.
Seconding of Teachers
Loan Agreement Schedule 6 Para. 22
27. The Borrower shall second suitably qualified teachers in a timely manner to private MIs and MTs during project implementation. Within 1 year after the Effective Date, the Borrower shall provide ADB with an action plan acceptable to ADB relating to the seconding of qualified teachers during project implementation and cause private MIs and MTs to retain these teachers, as required, to ensure sustained quality of education.
No longer applicable The Midterm Review Mission recommended that the Project’s allocation for seconding be converted to pay the salaries of teachers who enroll in diploma training programs. The Borrower has persuaded private MIs and MTs to retain these teachers, as required, to ensure sustained quality of education.
Policy Dialogue
Loan Agreement Schedule 6 Para. 23
28. The Borrower shall continue to have policy dialogue with ADB on the coordination of activities for basic education by MONE and MORA.
Complied with
Development of the National Education System
Loan Agreement
29. The Borrower shall ensure that MORA
Ongoing compliance
Appendix 6
40
Reference in Agreement
Loan Covenants
Status of Compliance
Schedule 6 Para. 24
coordinates with MONE and any other agencies concerned, with overall supervision and guidance provided by BAPPENAS, on the formulation of strategies and the carrying out of activities relating to the development of the national education system.
MORA is engaged in frequent and extensive discussions with MONE and BAPPENAS on the future development of the national education system.
Loan Agreement Schedule 6 Para. 25
30. Within 6 months after the Effective Date, the Borrower shall ensure that the directors general of primary and secondary education and DGIID establish appropriate implementation mechanisms at the national, provincial, and district levels, with representatives from BAPPENAS and any other agencies concerned, to ensure coordination of activities relating to the expansion of junior secondary education.
Ongoing compliance MORA is engaged in frequent and extensive discussion with the directors general of primary and secondary education of MONE and BAPPENAS on the future development of the national educational system.
Benefit Monitoring and Evaluation Loan Agreement Schedule 6 Para. 26
31. Within 6 months after the Effective Date, DGIID shall, in consultation with BALIT-BANG, establish a benefit monitoring and evaluation (BME) system in accordance with the provisions of ADB’s Handbook for Benefit Monitoring and Evaluation. Such a BME system shall be subject to the approval of ADB. During project implementation, DGIID shall periodically compare actual and projected performance with baseline and target indicators and recommend measures for immediate corrective action.
Partly complied with DGIID or BALIT-BANG do not have the institutional capacity to periodically establish a BME system. As per the recommendations of MTR, two BME studies were conducted in FY2000 and FY2001, respectively. The reports of the BME studies are available for consultation.
32. DGIID shall 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 DGIID and ADB.
Complied with Part 2 of the second BME study was conducted in 2002 (i.e., after the physical completion of the Project).