Investing in Multi-grade Teaching in Indonesia Policy Brief November 2010 KEMENTERIAN PENDIDIKAN NASIONAL 58758 pipeline to make it possible to transfer teachers from teacher- surplus to teacher-deficit regions and schools, so many small schools will eventually have fewer teachers. This makes MGT even more necessary. Secondly, multi-grade teaching is sound pedagogy. One major problem with the expansion and enrichment of MGT is the perception ­ of policy-makers, teachers, and parents alike ­ that it is somehow a second-class or "poor relation" to the traditional mono-grade class. In fact, MGT approaches are seen in many developed countries and progressive public and private systems of education as the approach of first choice with clear pedagogic advantages over traditional mono-grade Multi-grade teaching in action at SDN Gunungsari 4 Batu - Malang, Photo by Rina Arlianti classrooms. Multi-grade teaching (MGT) is an important and appropriate approach in Indonesia to reach both its What is the Situation of MGT Globally and in internationally-mandated Education for All targets and Millennium Development Goals and the newly established Indonesia? Minimum Service Standards. MGT also supports the goals of the new RENSTRA: availability, outreach, quality and Globally, a conservative estimate of 30% of children currently relevance, equity, and access. in multi-grade classes in all countries yields a world total of 192.45 million. Add this to, say, 50% of currently out-of-school A good definition for multi-grade teaching (MGT), from one children for whom opportunities to learn would most likely to of the most complete reviews of good practice in MGT, states occur in a multi-grade class. This generates an additional 52 that it occurs where "a single teacher is responsible for a class million children for a total of 244.45 million children worldwide formed of children from two or more year grades." 1 for whom a multi-grade pedagogy is likely to be useful. For developing countries alone, the total estimate is 218.60 million.2 Why Multi-Grade Teaching in School? In Indonesia, there are no accurate data concerning the extent First, it saves the system money. There are currently over of MGT. Very incomplete estimates, largely from five districts 24,000 primary schools in Indonesia with fewer than 90 pupils of the BERMUTU Pilot Project (which focuses on addressing and over 5000 with fewer than 50. However, because teachers teacher employment and deployment issues, assisted by the in Indonesia are currently allocated to schools based on the World Bank) and the Mainstreaming Good Practices in Basic number of classes rather than the number of students, even Education project (assisted by UNICEF) indicate that it is a school with 50 students might have eight teachers - six class being implemented by teachers trained in MGT techniques, teachers (one of which is also assigned as school principal), with some supervision and technical assistance, in at least and two additional teachers for religion and sports - leading to 11 provinces but perhaps only in around 150 schools and a student-teacher ratio (STR) of less than 7:1. Thus, in remote madrasahs. and isolated locations where there are many small schools, it is not economically efficient or viable to have one teacher per Hundreds of teachers have also completed 10 hours of training, class. along with five hours of online assignments, in a two-credit module on MGT developed by Universitas Negeri Semarang Inefficient use of resources is exacerbated further in schools as part of a consortium of universities and implemented with few students and many teachers, which may lead to through the distance education S1 upgrading programme of effective underemployment of teachers, while the system still Universitas Pendidikan Indonesia in Bandung. Other practicing has to pay them full salaries. A new policy is currently in the teachers have completed another module on MGT in the S1 upgrading course offered by the Open University. Both of 1 Angela W. Little. Education for All and Multi-grade Teaching: Challenges and Opportunities Springer, London, 2006, p. 3. 2 Ibid these programmes complement the modules with a package as well as quality improvement. However, it would quite of print material, audio material, and video and web-based inevitably lead to some teachers being rendered redundant. learning material. But the extent to which these teachers are now using MGT techniques is unknown. Experience has shown that there is a critical set of principles which make for good MGT. These include: Much MGT that occurs is "unplanned" and due to teacher active, child-centred, participatory, cooperative, and self- absenteeism. A recent study of remote schools in Indonesia paced teaching-learning methodologies; indicated that 17% of teachers in the sample were absent on flexible, theme-oriented curricula and materials; a given school day.3 And a draft baseline survey designed to a flexible, attractive, child-focused classroom environment; assess the impact of the new certification process indicated, strong relevance to the local context and culture; through teacher self-report, that SD teachers are absent over active parental and community involvement; 5% of the school year (82% of the time because of illness).4 the teacher as facilitator, motivator, and community resource person; As a result of such absenteeism, other teachers are often faced class and classroom management which is flexible in nature suddenly with the problem of what to do with an "empty" class. but structured in terms of the curriculum. The principal and other teachers may take turns "minding" the class, assigning (or re-assigning) deskwork, keeping the class Two other principles of good education are especially together and in order, but not moving it forward through the facilitated by MGT because it offers: intended curriculum. Class hours are wasted, by both teachers a "whole" child approach. The small number of children in a and students, when, in fact, they could be made much more small school; the size of the community around it; the close useful through the use of basic MGT techniques. linkages among early childhood centres, community health posts, kindergarten, and primary school which a small What Does MGT Look Like, and What Should it Look community permits; and the likelihood that teachers come from and/or live in the community make it more possible Like? for the school to be concerned about the "whole" child ­ not only attendance and academic performance, but also health There are many kinds of MGT. They range from the most basic and nutrition status, family history, and home environment. (and least useful) ­ a teacher moving between two grades a "whole" school approach. Given that most MGT teaching in two classrooms (or two sections of a divided classroom), takes place in small and usually remote, isolated, and teaching different topics to each ­ to the most advanced poor schools, the competencies required by teachers and (and most useful) ­ a teacher making a programme for the principals to function successfully in such contexts go far combined grades, in one space, with a mix of grade-specific beyond the classroom techniques of MGT. Improving the and grade-combined activities stressing student participation quality of a school using MGT therefore implies developing and collaboration, focused on specific themes, and developed among its staff a range of other relevant skills, behaviours, for different levels of ability. and attitudes. One challenge in Indonesia is the use of MGT in small schools with surplus teachers, which may encourage perverse teaching How to Expand and Enrich Multi-grade Teaching? practices. Often, classes with few students cannot achieve the level of enthusiasm, competition, and interaction seen as Given the present potential of MGT as good teaching practice necessary for learning. Hence, even in teacher-surplus schools, and as a tool to rationalise Indonesia's current oversupply of grades are combined in order to reach that desired threshold of teachers, the Ministry of National Education should work to activity. This often leads to "team teaching," where two or more expand the reach and enrich the practice of MGT. teachers in a class of, for example, 10 children (e.g., grades 3 and 4) join forces to provide labour-intensive, well-organized, In the short-term: and personalised instruction. This runs the risk, however, of becoming "turn teaching," where one teacher teaches while A. Improving the quality of data on the extent of multi- the other sits at the back of the room and observes, or even grade teaching in Indonesia stays home for the day. There is an obvious advantage in implementing MGT in such schools, both in terms of efficiency A major constraint to the further development and enrichment of MGT is the lack of data concerning the extent to which it 3 SMERU, Remote Area Allowances and Absentee Levels for Teachers in takes place ­ either planned, within schools explicitly labelled Remote Areas, Jakarta, January 2010 as "multi-grade or unplanned due to frequent and/or lengthy 4 World Bank Jakarta, The Teacher Certification Law, and Student and Teacher Learning: Status, Progress, Results and Challenges. Work in teacher absences. The number of existing small schools progress. which would benefit from MGT is also not known. Existing 2 information on MGT practice is limited to donor-funded makes it essential, first, to ensure that all teachers working now project districts and schools or is of questionable accuracy as a in small schools learn good MGT practice through in-service result of the lack of clear definition. education. However, because virtually all teacher trainees in pre-service programmes will need MGT techniques either in B. Developing richer descriptions of existing modes of small schools or in regular schools during periods of extended multi-grade teaching, management, and support in teacher absenteeism, MONE should ensure that all pre-service Indonesia education programmes include a unit and practice teaching on MGT. While quantitative data concerning the extent of MGT in Indonesia are rare, the qualitative descriptions of the range of In support of these efforts, of course, Dinas and sub-district approaches to MGT in the classroom, to its management, and staff, supervisors, district-level facilitators, and principals must to its support from the district office are even more limited. also understand and be able to advocate for MGT, reinforce How is MGT done well in classrooms? How is it managed best its concepts, facilitate its implementation, and mentor its both in teacher-deficit and teacher-surplus schools? How is practitioners. it supported most effectively through principals, supervisors, and teacher groups and in various kinds of in-service training E. Revising curricula, texts, and (low-cost) teaching provided to teachers? materials to reflect a multi-grade, local-content approach C. Developing a more explicit policy on MGT, more comprehensive guidance on its implementation, and MGT must start from the national curriculum and approved more flexible regulations concerning MGT practice textbooks but will require several revisions: adaptable to individual school, community, and training materials to assist MG teachers and principals in cultural contexts managing the curriculum and students for a MG context MGT has only recently been implemented in districts involved adaptations to the curricula to facilitate a MGT approach in a range of donor-supported projects but is virtually unknown (e.g., developing a thematic rather than a grade-focused in many other districts with large numbers of small schools. orientation in some subjects) MONE and District Education Offices (Dinas), at all levels, use of locally relevant materials (preferably made, with little must more actively promote the use of MGT and develop a cost, in the school) linked to the particular social, cultural, set of guidelines, training programmes and materials; good and economic life of the community examples of MGT curricula, syllabi, and lesson plans; and good practices in order to ensure the spread of MGT, including its F. Promoting community support and participation for insertion into future district-level RENSTRA. small schools The likely range of approaches to MGT, deriving from the A small school with multi-grade classrooms is likely to play a immense diversity of Indonesia's social-cultural context more important role in the small communities which surround and education system, makes it imperative that any future it than its size would imply. If the teachers come from the regulations concerning MGT strike a balance between ensuring community and, in ethnic and linguistic minority areas and its adherence to the core characteristics of good practice speak the local language, the school is likely to have a closer described above and the need to be adaptable to individual link to the community. Its teachers know the parents in school, community, and cultural contexts. contexts other than the school; its classrooms might be used for pre-school and adult education classes; and the teaching These short-term actions imply the need for both clearer lines experiences it provides might be seen as relevant to the lives of responsibility for the development of various aspects of which its students will eventually lead. The community feels it MGT ­ e.g., teacher training, and materials development ­ and "owns" the school and is "of" the school as much as the school a unit more clearly dedicated to the further expansion and is "of" the community. enrichment of MGT. G. Ensuring a whole school approach to small school In the longer-term, a number of other important actions must planning and management be taken, including: Because of the location of MG classes in these communities, D. Revising teacher education and support to include the small school context requires more skills of its staff than MGT multi-grade teaching techniques. Small schools have their own particular planning and management challenges ­ small Success in the delivery of MGT depends essentially on the budgets and contributions from the community, frequent capacities (knowledge, skills, and attitudes) of teachers. This teacher absenteeism if the teachers travel long distances to 3 the school, and relatively little support from distant district I. Considering the implications of MGT for school and sub-district offices. budgets and teacher remuneration H. Establishing a clear regulatory framework that sets A further challenge to the system is the financial implications MGT as the approach of first choice, especially in of its practice. Although teachers in isolated, remote schools small schools already receive added incentives, some MG teachers and principals would argue that MG schools face challenges which It should be noted that the current regulatory framework require additional support; this includes additional routine actually accommodates MGT in primary schools. No regulation and BOS funding and special incentives to MG teachers given stipulates that one class should be comprised of one grade the additional work they are said to face in preparing for and only, and Government Regulation 19/2005 authorizes schools handling two or more classes. Given the lack of training and to assign teachers "according to their needs." Furthermore, technical assistance now available in regard to MGT and a lack MONE Regulation 15/2010 on Minimum Service Standards of motivation to practice MGT and do it well, extra incentives stipulates that a primary school should have at least one to teachers using MGT should be provided. teacher per 32 students and a minimum total of 6 teachers per school, with at least 4 teachers per school in special areas. Such arrangements would clearly give room for MGT. Summary However, a more explicit regulatory framework is still needed Multi-grade teaching is essential and appropriate for a variety to establish MGT as the preferred option. There are already of contexts in Indonesia, particularly in remote, isolated planned regulations in the pipeline that would address teacher schools with a limited number of teachers. Its focus on child- deployment and school staffing issues, including regulations centred, interactive, participatory, and collaborative learning, on the strategy to meet teacher needs in small schools and across ages and grades; its adaptability to a range of cultural on integrating secondary school subject teachers into cluster- and school-specific contexts; its cost-efficiency in creating based teachers. The regulatory framework for MGT can viable teacher-student ratios; and its potential reinforcement be incorporated into either or both of the aforementioned of linkages among pre-school, primary school, and community policies. should make it an approach of "first choice" for many schools in Indonesia. About BEC-TF The Government of the Kingdom of the Netherlands and the European Commission have provided grants for the Basic Education Capacity Trust Fund (BEC- TF) with the purpose of supporting the Government of Indonesia in improving the delivery of decentralized basic education. Managed by the World Bank, the BEC-TF supports analytical work and thematic dialog in education between the Government and development partners at the national level. At local government level, it supports capacity development and strengthening of systems for planning, budgeting, financial and information management in the education sector. The findings, interpretations and conclusions expressed in this publication do not necessarily reflect the views of the Government of Indonesia, the Government of the Kingdom of the Netherlands, or the European Commission. Human Development Sector, World Bank Office Jakarta Indonesia Stock Exchange Building, Tower 2, 12th Floor Jl. Jenderal Sudirman Kav. 52 ­ 53 Phone: (021) 5299 3000, Fax: (021) 5299 3111