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SOCIAL AUDIT REPORT OF GOVERNMENT’S ROLE IN ENCOURAGING MADRASAH DEVELOPMENT IN INDONESIA; A STUDY IN WEST BANDUNG AND KENDAL DISTRICTS
2014
BANDUNG INSTITUTE OF GOVERNANCE STUDIES
2
Table of Contents
Executive Summary..................................................................................................................3
Social Audit Process.................................................................................................................4
Results of the Social Audit......................................................................................................8
Main Findings..........................................................................................................................10
Challenges and How to Deal With..........................................................................................12
Conclusions and Recommendation........................................................................................12
Advocacy.................................................................................................................................14
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Executive Summary
Social audit is institution performance measuring process for social aspect, which could
be approached by the objective, task and role of the institution. By the definition, BIGS
attempts to develop social audit by observing the government role in the development
of madrassa. Social audit is aiming at (1) assessing government role and identifying the
weakness in the development of madrassa, (2) formulating primary solution in solving
issues faced by madrassa through participatory approach which involving the
stakeholders ideas.
The social audit takes place in West Bandung and Kendal Regency which attended by
some of the madrassa stakeholders, and included the representatives from the province
and district Ministry of Religious Affairs, District Service of Education, District Legislature,
Teacher Organization, Parent-Teacher Foundation, and madrassa principals especially the
Madrasah Tsanawiah principals.
The social audit result indicates the madrassa condition is not well developed because of
the limited role of the Ministry of Religious Affairs. On the regulation side, the condition
is going well but still weak in the access and implementation area, especially the
unevenly distributed socialization for service information and provision. Besides, the
limited government role to support development of madrassa is caused by the lack of
regional level regulation that guarantees the government obligation that will definitely
support the madrassa.
In order to improve the development of madrassa, the social audit recommends some
points, namely (1) the government, in this case the Ministry of Religious Affairs,
guarantees the extent of service information from the grant, social support and DAK to
all madrassa, (2) government, in this case the Ministry of Religious Affairs, provides
extent support to all madrassa and doesn’t only focus to state madrassa, (3) provision
for regional level regulation which guarantees the local government obligation to
support the madrassa, (4) local government needs to allocate regional funds for
madrassa, (5) developing good cooperation between regional education service and
Ministry of Religious Affairs, by doing minimum once per month coordination meeting to
discuss the madrassa issues.
4
Social Audit Process
BIGS has completed a research project on madrasah education in Indonesia, being
implemented in two areas, that is, West Bandung District of West Java Province, and
Kendal District of Central Java Province. The research uses two approaches: PETS and
CRC. Based on those approaches, there are some main findings to be the focus of
attention, among others: firstly, the government’s attention to madrasah is still lacking,
especially from funding aspect. All this time the government only provides routinely a
very limited amount of fund through School Operational Aid (Bantuan Operasional
Sekolah, BOS) scheme. The scheme cannot afford to fulfill the school’s ideal operational
needs because more than 50% of the aid is for paying teacher salaries. Secondly, the
lacking of madrasahs’ services quality for their students, especially teacher, structure and
infrastructure, and text-book services.
Two of the research’s main findings become the issues of advocacy activities. To
strengthen the issues in advocacy activities, Social Audit is carried out in advance. In the
Social Audit, the first thing to do is creating an audit frame work. The frame work will be
developed based on results of the previous researches and type of social audit will be
used.
Social audit is a process to measure an institute’s performance from social aspect.
The approach may be taken either from the institute’s objectives, works, or roles. A
social audit will measure whether an institute has fulfilled objectives/works/roles well.
Based on this definition, BIGS seeks to develop a social audit through looking at
government’s roles in developing madrasah. From the two main findings of the previous
researches it is alleged that the government have not yet to do its job well. To verify that
allegation, it is necessary to audit their roles.
BIGS’ research team has implemented the social audit activities twice, that is, at
May 26, 2014 in West Bandung District, and at May 28, 2014 in Kendal District. Some
activities the team carried out before the social audit forum taking place are:
1. Having an audience with Madrasah Director of the Ministry of Religious Affairs to
communicate how to implement the social audit.
2. Making approaches both in formal and informal to all of the social audit
participants, particularly to the governmental representatives, namely, Ministry of
Religious Affairs at provincial and district levels, Educational Service and
Educational Commission of Local Legislative at District level. Approaches have
been made in frequent times to give explanations on things from what the
intentions, objectives, the importance of having social audit, and to find the most
appropriate representatives to be invited to attend the social audit forum.
3. Conducting FGD twice, with School Committee and parent representatives and
with the MTs representatives. The objective is to build the participants’ self-
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confidence and to explain materials of the social audit to them so that there
would be no information discrepancy about government’s programs. Therefore,
they are able to give their own opinion and have the courage to make objective
assessment.
This project adopts Multi-Stakeholders Social Audit, abbreviated as MSSA. Using
multi-stakeholder perspective, this model is developed to audit certain aspects. It is said
as ‘multi-stakeholder’ because the stakeholders come from three elements, namely,
government, service providers, and final beneficiaries of a program. Social (non-financial)
aspect that developed within the frame work becomes the one assessed. Assessment to
the social aspect is carried out together by participants in the multi-stakeholder forum.
Based on the previous research’s results and the adopted model of the social
audit, then BIGS conducts a Social Audit by considering these two following things:
1. Performance of the MTs. The aspect to assess in particular is the teacher services,
that is, to what extent the MTs do teacher preparation in quantity and quality to
serve the MTs students.
2. Performance of Governmental Institutions. There are two governmental
institutions, namely, the Ministry of Religious Affairs and Local Governments,
playing important roles in MTs development. Especially as for the former’s role,
the aspect to assess is to what extent the Ministry would play a role in providing
structures and infrastructures for MTs. As for the latter’s, to what extent their
roles could help with MTs funding.
Basically, the social audit that is developed during this project will look at three
roles, that is: (1) MTs’ roles in delivering teacher services, (2) the Ministry of Religious
Affairs’ in facilitating structures and infrastructures for the MTs, and (3) local
governments’ roles in helping with MTs funding. Those three said roles are variables to
assess within the frame work. The three variables are reduced respectively to three
indicators, namely, (1) existence of policy, (2) implementation of policy, and (3) access.
Combination of variables and assessment indicators is called as value chain. Frame work
within this social audit project is shown as below:
Table 1. Social Audit Frame Work on Government’s Roles in Developing Madrasah
Variable Indicator
Existence of Policy
Score Implementation of Policy
Score Access Score
MTs’ Roles 1
2 3
The Ministry of
4 5 6
6
Religious Affairs’ Roles
Local Governments’ Roles
7 8 9
Source: Processed by Researcher, 2014
From the frame work above, there are nine cells. Every cell contains a key
question to ask to all of the participants in the social audit forum. The key questions are
below:
Table 2. Key Questions for the Social Audit
Cell Question
1. To what extent are the policies on MTs roles sufficient to increase teacher competence?
2. To what extent are MTs capable of increasing teacher competence?
3. To what extent is society’s access in encouraging teacher competence?
4. To what extent are policies on the Ministry of Religious Affairs’ roles sufficient to provide structures and infrastructures for MTs?
5. To what extent is the Ministry of Religious Affairs capable of providing structures and infrastructures for MTs?
6. To what extent are the MTs able to access information and mechanisms of channeling structures and infrastructures aid from the Ministry of Religious Affairs to the MTs?
7. To what extent are regulations on local governments’ duties sufficient to provide funding aids for MTs?
8. To what extent are local governments capable of fulfilling their duties to provide funding aids for MTs?
9. To what extent are MTs able to access information from local governments?
Source: Processed by Researcher, 2014
All of the present stakeholders assess indicators as stated within the frame work.
Stakeholders who attend BIGS’ social audit forum come from several elements, namely,
(1) the Ministry of Religious Affairs, (2) Educational Service at District level, (3)
Educational Commission of Local Legislative at District level, (4) Five MTs
representatives, (5) Three School Committee representatives, (6) Three parent
representatives, (7) Teacher Professional Organization, and (8) umbrella
institution/organization for MTs. The assessment is carried out by referring to these
following rules below:
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Table3. Rules to Give Score
Condition
Score
If all of the appearing facts are negative or not very good 1
If majority of the appearing facts are negative, but still there is one or two facts are positive
2
If majority of the appearing facts are positive, but still there is one or two facts are negative
3
If all of the appearing facts are positive 4
Source: Processed by Researcher, 2014
Below is sequence of process during the social audit:
Table 4. Sequence of Process during the Social Audit Forum
No. Activity Description of Activity
1. Opening the Forum Director of BIGS opens the forum and gives explanation about the intentions, objectives and the importance of the coming social audit activities. Furthermore, there is a welcoming speech from governmental representative, in this case from local Ministry of Religious Affairs.
2. The Forum Begins Introducing all participants and making the forum’s initial agreement about time
3. Contextualization Giving explanation to participations about what social audit is and what social audit activities to do and explanation on what frame work to use
4. Explanation on how to conduct discussion
Explanation on what fact exploration is, how to agree to the facts as consensus; explanation on how to give, and to agree to, score.
5. Conducting Fact Exploration
Asking opinion from all of the participants on facts at each cell within the frame work, and then agreeing to the fact list and the scores afterward.
6. Formulating Recommendation
Guided by facilitator, the participants formulate recommendations based on results of the finished audit.
7. Follow-Up Plan Formulating advocacy activities to champion the previously formulated recommendations.
Source: Processed by Researcher, 2014
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Results of the Social Audit
Table 5. Results of the Social Audit on Government’s Roles in Madrasah Development in
West Bandung District
MTs Roles (Teacher Services) Variable
Result Score
Existence of Policy Indicator
There are some regulations for teachers to improve the teacher competence, scholarship programs for teachers to have graduate/postgraduate degrees; MTs are obliged to improve their teacher competence. All of those are regulated in Law No. 20/2003 on national education system. There are regulations at local level as well, that is, Local Regulation No. 6/2012 on Education Administration
3
Implementation of Policy Indicator
There are teachers who still do not have graduate/postgraduate degree, teaching more than one subject, which are not suitable with their specialties; there are many of them who still have not made the learning plans. Also, school funds allocated to teacher’s competence development is very little, and many teachers are recruited without considering their competences.
2
Access Indicator Parents are given less opportunities to criticize teacher competence. Teacher competence is seldom to be discussed as the topic of conversation within school committee forum
3
The Ministry of Religious Affairs Roles (Structure and Infrastructure Services) Variable
Result Score
Existence of Policy Indicator
There is a policy regulating that the Ministry of Religious Affairs may give structure and infrastructure facilities to MTs, derived from either Special Allocation Fund or Grant
3
Implementation of Policy Indicator
S0 many MTs is still lacking in such facilities as science laboratory, prayer room, conseling room, bathroom, gymnasium, language laboratory, and other equipment for laboratories. Structure-and-Infrastructure Aid (Bantuan Sarpras) for private MTs also lacks, because it is only less than 10%. Many MTs still lack of classroom as well.
2
Access Indicator Little information on the structure-and-infrastructure aids
2
9
Local Government Roles Variable (Funding Aid)
Result Score
Existence of Policy Indicator
There are regulations that local governments are responsible for funding educational institutions within their regions with 20% as a minimum allocation. A Regent Decree (SK Bupati) on School Operational Aid (BOS) is released
2
Implementation of Policy Indicator
Local governments’ funds for MTs is still minimal 2
Access Indicator Access to information on local governments’ funds for MTs is minimal.
2
Source: Processed by Researcher, 2014
Table 6. Results of the Social Audit on Government’s Roles in Madrasah Development in
Kendal District
MTs Roles (Teacher Services) Variable
Result Score
Existence of Policy Indicator
There are some regulations on standardization for MTs teachers (Law No. 20/2003); at local level there is a Local Regulation No. 10/2012 on 9-Year Basic Education Administration; also there is a Regent Decree that all of schoolchildren must complete their schools.
3
Implementation of Policy Indicator
There are teachers who still do not have graduate/postgraduate degree, teaching more than one subject, which are not suitable with their specialties; teachers are recruited without considering their competences; school aid allocated to teacher development is less than 5%; the School gives chances for teachers to have education and training; the MTs through their inspectors carry out management development for their teachers.
3
Access Indicator Schools give parents room to criticize teacher competence. School teachers’ qualifications are informed through wall magazine
3
The Ministry of Religious Affairs Roles (Structure and Infrastructure Services) Variable
Result Score
Existence of Policy Indicator
There is a policy regulating that the Ministry of Religious Affairs may give structure and infrastructure facilities to MTs, derived from either
3
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Specially Allocated Fund or Grant; however, there is no regulation yet on MTs qualifications to deserve the said aids
Implementation of Policy Indicator
Not many MTs receive the structure and infrastructure aid; there is fund from grant scheme but they are limited nonetheless.
3
Access Indicator There is dissemination of information on the structure and infrastructure aid, in limited ways, however, the aid does not reach all MTs yet
3
Local Government Roles Variable (Funding Aid)
Result Score
Existence of Policy Indicator
There are regulations that local governments are responsible for funding educational institutions within their regions with 20% as a minimum allocation. There is no regulation on School Operational Aid (BOS) yet
2
Implementation of Policy Indicator
Neither Grant Fund or Special Allocation Fund is allocated to MTs yet
2
Access Indicator Information on any aids for MTs is very minimal 2
Source: Processed by Researcher, 2014
Main Findings
Table 7. Summary of Social Audit Scoring in West Bandung District
Variable Indicator
Existence of Policy Implementation of Policy Access
MTs Roles 3 2 3
The Ministry of Religious Affairs Roles
3 2 2
Local Governments’ Roles
2 2 2
Source: Processed by Researcher
Table 8. Summary of Social Audit Scoring in Kendal District
Variable Indicator
Existence of Policy Implementation of Policy Access
MTs Roles 3 2 3
The Ministry of Religious Affairs Roles
3 3 3
Local Governments’ Roles
2 2 2
Source: Processed by Researcher, 2014
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On the two summary of scoring tables above, the blue-colored cells show low
scores, taking place onto respectively the roles of the local governments and the Ministry
of Religious Affairs, particularly in implementation of policy and access indicators.
Main findings related to the minimal roles of the Local Governments in helping
MTs are:
1. Despite national regulations, stating that local education funding become local
governments’ responsibilities (the 1945 Constitution, Amendment to Article 33;
Laws No. 20/2003, Article 11; Governmental Regulation No. 48/2008, Article 2), the
supporting regulations at local level are still lacking. Consequently, local
governments seem still hesitant about allocating funds from their Local Budgets
to support madrasah.
2. From implementation of funding policy aspect, not many MTs receive the local
governments’ fund aids. They may get aid either from Grant Fund or Social Aid
allocated-posts, but in very limited amount. Usually the aid-receiving MTs are
close with a certain local officials.
3. Many MTs do not know what kinds of fund they may access from Local Budget.
On the other hand, local governments’ dissemination of information on the aid is
very minimal. School operational aid is available for MTs in West Bandung District,
but none in Kendal District.
Main findings related to the minimal roles of the Ministry of Religious Affairs in
helping MTs are:
1. From regulation aspect, the Ministry of Religious Affairs’ roles are already quite
good, as funds, coming from Grant and Special Allocation Fund, have been
allocated to MTs’ structure and infrastructure. Nevertheless from implementation
aspect, the Ministry’s roles still lack. Funds allocated to structure and
infrastructure aid are less than a minimum so that only a few of MTs receive them.
There is a tendency for only public MTs may receive the funds.
2. Information on structure and infrastructure aid is not published via website.
Hitherto the information goes directly to the Ministry of Religious Affairs at
District level; however, dissemination of the information from the said District
Ministry through schools is lacking.
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Challenges and How to Deal With
There are some challenges of carrying out the social audit, among others:
No. Challenge How to Deal With
1. Disseminating information of social audit to stakeholders, particularly government. The challenge is stakeholder’s resistance against the word “audit”.
The term “social audit” is modified to “stakeholder forum”
2. Convincing participants that the social audit is important.
Combining approaches, namely combining formal and informal approaches
3. Convincing all of the participants to attend the social audit forum, especially the governmental representatives.
Combining formal and informal approaches is one of the strategies. Another strategy is making several visits to ensure whom to send (the representative) to the forum
Conclusion and Recommendations
Conclusion
From the finished social audit sosial, some conclusions may be drawn as follows:
1. Madrasah is not able to develop well yet because the very minimal roles of the
Ministry of Religious Affairs. The related regulations are already quite good but
the implementation is not going properly yet, especially dissemination of
information on aids and the uneven distribution of the aids.
2. Local governments’ roles in helping madrasah development is still very minimal,
one of the main reasons is that there is no local regulations yet to ensure the said
local governments will fulfill their duties to support madrasah without fail.
Recommendations
Below are some recommendations for policies:
1. Government, in this case Ministry of Religious Affairs, should ensure that
information on aid or madrasah (which come from grant, social aid, and Special
Allocation Fund) reaches all madrasah.
2. Government, in this case Ministry of Religious Affairs, should give aid to all
madrasahs equally, instead of focusing to public madrasah only.
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3. It is necessary to make local regulations that guarantee local governments’ duties
to support madrasah
4. Local government needs to allocate regional funds for madrassa.
5. Developing good cooperation between local education service and Ministry of
Religious Affairs, by doing minimum once per month coordination meeting to
discuss madrassa issues.
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Advocacy
Aspect Description
Desirable change Madrasah can grow and develop well through adequate funding from central government/Ministry of Religious Affairs and local government
Obstacles to deal with Political : 1. Madrasah is considered a part of vertical instance,
therefore local government does not pay much attention to madrasah
2. There is no regulation at local level that can guarantee that local government must help madrasah
Economic: 1. Almost all madrasahs are managed by foundations that
are not well-established yet 2. Majority of madrasah students come from poor families,
hence it is unlikely to expect financial participation from parents
Social : 1. Madrasah is identical to Islamic school, hence it pays less
attention to general knowledge 2. Madrasah is considered traditional, not modern school
Target of Campaign Ministry of Religious Affairs 1. Disseminating information of aid to all madrasahs 2. Giving aid to all madrasahs equally
Local Government 1. Making regulation that ensures local government has
obligation of addressing madrasah issues 2. Making aid programs, such as Local Operational Aid for
madrasah Local Parliament
1. Facilitating meeting between MoRA and local government to discuss on similar roles among them
2. Encouraging local-level rules that regulate local government’s obligation of helping madrasah
1.
How to influence the Target of Campaign
1. Organizing audience with MoRA and local government (Regent, Head of Education Service of District Level) and Local Parliament, by sending policy brief on policy on madrasah
2. Involving representatives of madrasah, teacher organization, and school committee when doing audience with government
15
3. Writing results of research (that has been conducted) in media, in order to shape public opinion
4. Building informal communication with government officials who have concern on madrasah issue
Results of the Campaign
1. Ministry of Religious Affairs, particularly at local level, starts to improve their programs on madrasah
2. Local government, in this case Education Service, starts to open themselves and make dialog with madrasah, and to have willingness of helping madrasah
3. Some Local Parliament members are ready to help facilitating MoRA with Education Service at local level on discussion on madrasah issues
4. Commitment from Commission Four district legislature to optimize regional funds for madrassa
Lessons to Learn 1. Informal dialog and approach is more effective to encourage policy change
2. Policy change will be better if we do not seek to find government’s mistakes, instead we should try to help government identify the problems