Summary of Terminal Evaluation
1. Outline of the ProjectCountry: the Republic of Indonesia

Project Title:
INTEGRATED PLAN FOR JUNIOR SECONDARYEDUCATION IMPROVEMENT IN SOUTH SULAWESI(PRIMA-Pendidikan)

Issue/Sector: Basic Education

Cooperation Scheme: Technical Cooperation

Division in Charge: Indonesia Office(Makassar Field Office)Total Cost: JPY 225million

Period of
Cooperation:

Partner Country’s Implementing Organization: Ministryof National Education , South Sulawesi Province(R/D): from December
2007 to November 2010

Supporting Organization in Japan: International
Development Center of Janapn
Related Cooperation: Regional Education Development
and Improvement Program (REDIP)
1-1. Background of the Project
After achieving the 100% gross enrollment rate (GER) for primary education during the 1980s, theGovernment of Indonesia (GOI) shifted its focus onto Junior Secondary Education (JSE) in order toaccomplish the nine-year compulsory basic education by 2008. However, since this goal was not reachedby the target year, GOI instead set 95% GER for JSE to be achieved by 2009 (85.22% in 2005).1 In contrast
to this significant progress in access, education quality is lagging behind. It is widely acknowledgedthat in Indonesia quality of education remains low, falling behind the enrollment expansion. Since GOI
decentralized its administrative and financial systems in January 2001, local governments in Indonesia
have been responsible for the provision and finance of compulsory basic education. Local governments
including those in South Sulawesi Province are struggling to find an appropriate approach to play their roles
effectively, but up to now their performance is not optimal due to their limited capacity and experience.
In the decentralization era, it is important for the local government to apply a bottom-up approach indealing with the community and school levels, because they (community and school) know their needs,
problems and solutions best. This has been shown by a JICA-supported program called Regional Education
Development and Improvement Program (REDIP), which was implemented in North Sulawesi, Central Javaand Banten Provinces in 1999-2008. REDIP proved that community and school actually have capacity andresources to improve education, if they are given opportunities to do so.
To assist Indonesia’s development further, the Government of Japan (GOJ) has decided to increase its
assistance to Eastern Indonesia, which is the least developed region of Indonesia. The assistance willconcentrate especially in South Sulawesi Province, because it is the hub of Eastern Indonesia and canplay a crucial role in leading social and economic development of the region. It is expected that Japanese
assistance to South Sulawesi Province will bring impact not only on South Sulawesi but also on the wholeof Eastern Indonesia. In collaboration with the Japanese ODA Task Force, South Sulawesi Provincial
Government developed the South Sulawesi Province Regional Development Program (SSPRDP), which
consists of three strategic sub-programs: 1) urban development as a driving force for provincial regional
development, 2) well-balanced economic development, and 3) social empowerment. Basic education is anix

important component of the third sub-program, along with primary health.
As for basic education, South Sulawesi Provincial Government has set year-by-year targets to achieve thenational goal of nine-year compulsory basic education by 2009. However, the provincial record of JSE-GER
for 2005 was 76.32%, nearly 10% lower than the national average for that year. A steep uphill task is ahead.
In fact, the Baseline Survey on Basic Education and Primary Health covering 23 districts/municipalities inSouth Sulawesi, conducted by JICA Makassar Field Office (MFO) in September and October 2006, also
reveals that a still significant number of school-age children are not enrolled in JSE. Education quality isa serious concern as well. While the UN (national graduation exam) score of South Sulawesi in 2005 wasslightly higher than the national average, it is still necessary to provide in-service teacher training in orderto achieve the national goal of higher education quality. Recognizing the urgent need to find an appropriate
approach to improve JSE using a bottom-up approach, South Sulawesi Provincial Government requested
GOJ to provide assistance through JICA, which has successful experiences of bottom-up JSE improvementin other parts of Indonesia through REDIP. In response to the GOI’s request, JICA sent a preliminary study
team from May 27 to June 11, 2007. After discussing the concept of the possible assistance with South
Sulawesi Provincial Government and relevant stakeholders, South Sulawesi Provincial Government and
JICA agreed to implement the Project for the Integrated Plan for Junior Secondary Education Improvementin South Sulawesi (hereinafter called as “the Project,” “PRIMA Pendidikan” or “PRIMA-P” in short),and signed the Minutes of Meeting (M/M) with South Sulawesi Provincial Education Office on June 7,
2007. The Record of Discussions (R/D) to start the Project was officially signed between JICA, Provincial
Education Office and BAPPEDA of South Sulawesi Province on August 24, 2007. Based on the M/M and
R/D above, JICA sent the JICA Expert Team in December 2007 to initiate the Project.
1-2. Project Overview
Overall Goala model for integrated Junior Secondary Education improvement in terms of quantity, quality andmanagement is disseminated to other districts of South Sulawesi province.
Project Purposea model for integrated Junior Secondary Education improvement in terms of quantity, quality andmanagement is developed in the target districts.
Outputs
Output 1: Mechanism for community participation for JSE schooling is established.
Output 2: Mechanism to improve teaching-learning process is developed.
Output 3: Capacity to manage and administer education improvement activities of educational officers in
district and provincial governments will be developed.
InputsJapanese Side:
Short-Term Experts: 9 experts
Equipment: Rp.205,340,500
Training in Japan: None (16 C/Ps participated in Young Leader Training Program
Local cost: JPY 44,113,948
Indonesian Side:
C/Ps: 17 persons at provincial level, 78 persons at district level
Office and facilities
Operational costsx2. Evaluation Team
Members of
Evaluation
Team

Indonesian side:
Dr. H. A. Irawan Bintang, MT, Head, Human Resource and Institution Division, Provincial
BAPPEDA of South Sulawesi Province
Dr. Ruslan, Expert, Provincial Education Office, South Sulawesi Province
Drs. H. Rappe, M. Pd, Head, Madrasah and Islamic Education Division, Ministry of
Religious Affairs, South Sulawesi Province
Japanese side:
Leader: Mr. Tomoyuki TADA, Senior Representative, JICA Indonesia Office
Education Policy: Ms. Tomoko MASUDA, JICA Expert, Directorate General for theManagement of Primary and Secondary Education, Ministry of National Education,
Indonesia
Cooperation Planning: Ms. Yoko TANAKA, Project Formulation Advisor, JICA Makassar
Field OfficeEvaluation Analysis: Ms. Yuko OGINO, Senior Consultant, KRI International Corp.

Evaluation
Periodfrom 3 to 15 October 2010

Type of Evaluation: Terminal Evaluation

3. Results of Evaluation
3-1 Confirmation of Results(1) Achievement of the Outputs
Output 1 (Mechanism for community participation for JSE schooling is established)
Output 1 is considered to be achieved. Both Indicator 1.1(Non-school members of TPKs and School Teams
account for at least 20% of the total members) and 1.2(Number of activities to promote communication
between school and community accounts for at least 10% of the total number of activities.) are achieved
and Indicator 1.3 (Number of proposal reflected cross field activities between education and health.) can not
be measured due to the absence of target figures in PDM but the actual performance was confirmed. While
there were 15 health education activities in Cycle 1, there was an increased in Cycle 2 & 3.
Output 2 (Mechanism to improve teaching-learning process is developed.)
Output 2 is considered to be nearly achieved. Both Indicator 2.1(Strategy for improving teaching-learning
process is clarified.) and 2.2 (Sub-district based MGMP is held at least once a month.) are achieved andindicator 2.3(Percentage of teachers who have changed teaching-leaning process after MGMP/lesson study
accounts for 50%.) is Nearly achieved.
Output 3 (Capacity to manage and administer education improvement activities of educational
officers in district and provincial governments will be developed.)
Output 3 is considered to be nearly achieved. Both Indicator 3.1 (KIT is established and functions with
district budget.) and 3.2 (KIT is able to clearly present the model to district stakeholders and others.) areachieved and Indicator 3.3 (Roles and responsibilities of the Provincial Government in disseminating themodel are agreed by stakeholders of the province and the Project.) are partially achieved.

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(2) Prospect of Achieving the Project
Since all the indicators (1: Guidelines for action plan activities are developed and implemented., 2:
Percentage of the action plan funding disbursed by target district governments increases year by year toward
the end of the project., and 3: Target district governments secure funds for implementing the model in target
and/or non-target sub-districts by the end of the Project.) are achieved at the time of terminal evaluation,
Project purpose will likely achieved at the time of project completion.
3-2. Summary of Evaluation Result(1) Relevance
Relevance is considered to be High for the following reasons.
Necessity: PRIMA-P is in line with the needs of South Sulawesi Province as well as target groups(Provincial and District Education Officers, Schools, Communities and other stakeholders in the Projectsites).
Priority: PRIMA-P is consistent with both Indonesian overall development policies such as Mid-Term
National Development Plan (RPJMN 2004-2009 and 2010-2014) and its national educational development
policy (MONE’s RENSTRA 2004-2009 and 2010-2014). PRIMA-P is also in line with Strategic Plan forYear 2006-2009 and renewed one for year 2010-2014 which were specified by Provincial Education Office.
The Project is consistent with Japan’s Country Assistance Strategy (CAS) for Indonesia (2004) as well as
JICA’s country policy and strategies for Indonesia (2006); where education sector was prioritized as a partof South Sulawesi Regional Development Program assisted by JICA.
Appropriateness of approach: PRIMA-P’s approach (integrated approach of REDIP-based PSBM and
SISTTEMS-based Lesson Study) is appropriate. Both PSBM and Lesson Study are effective to improveeducation as evidenced in the past experiences of REDIP and SISTTEMS. PRIMA-P is also complemented
by and has synergy effects with other programs.
(2) Effectiveness
Effectiveness is considered to be High at district level (including sub-district and school) for the following
reasons:
Achievement of Project Purpose: Project Purpose is likely to be achieved in the light of 3 objectively
verifiable indicators by the end of the Project as described earlier. Project Purpose focuses on the districtlevel attainment, and the Project has been effective in developing model at the district level to reach out
to schools and communities. However, in spite of the fact that the Project has been implemented with an
expectation to have synergy effects of combining PSBM and Lesson Study, PDM does not capture indicators
to assess such effects. Details are described in “Lessons Learned”.
Distinct effects of PRIMA-P :PRIMA-P has an ability to motivate a wide range of people through their experiences in Action Plan
Activities. The mechanism could allow people to practice democratic and rational decision-making process.
PRIMA-P has effectively broken down the administrative barrier between SMP and MTs. SMP and MTs
could collaborate each other for the first time under TPK.
PRIMA-P has nurtured mutual trust among the education stakeholders by adopting strict transparency rulesin the Action Plan Activities.
PRIMA-P has facilitated the stakeholders in developing their capacity to decide and execute everything by
themselves in the process of planning and implementing activities using the block grant.

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Important Assumption: The Project has faced frequent changes of C/Ps in KITs (Jeneponto and Wajo) as
well as a working level focal C/P in Provincial Education Office. However, such changes did not cause
serious problems hampering the achievements of the Project Purpose.
(3) Efficiency
Efficiency is considered to be High for the following reasons:Achievement of Outputs: All the Outputs 1-3 have been achieved with one reservation in the attainmentof Provincial Government agreement regarding their roles and responsibilities of disseminating the model(Output 3, objectively verifiable indicator 3.3) as described earlier.
Inputs from Japanese side: All the inputs have been appropriate overall, including Japanese Experts and FCs
as well as equipments and operational costs in terms of quantity, quality and timing. There are a few points
to be noted as follows:
Inputs from Indonesian side: C/Ps, office space and operational costs have been provided appropriately
except for the budget allocation at Provincial Education Office.
Use of experiences and resources from other projects: As mentioned earlier, experiences and resources
accumulated in REDIP and SISTTEMS as well as present PELITA have contributed to increase efficiency in
PRIMA-P.
(4) Impact
Prospect for achieving impact is considered to be High for the following reasons:
Prospect of achievement of Overall Goal: Overall Goal is partially achieved as described earlier. PRIMA-P
has already been introduced to some of the non-target districts by way of workshops conducted by
Provincial Education Office, technical exchange programs and visits by FEP Team.
Positive impact brought by PRIMA-P:
PRIMA-P has contributed to streamlining district educational administration. C/Ps have started adopting
formats of school and financial plans that Project developed. KIT is expected to be expanded to include
concerned stakeholders, such as FEP Team, BOS Team and so forth, into one forum.
Core principles and good elements of PRIMA-P have been reflected on the process of revising FEP
guideline.
Moreover, C/Ps intend to widely introduce PRIMA-P to elementary and high school levels. (Jeneponto)
LPMP has an idea about introducing Lesson Study to South Sulawesi Province through making best use ofresources such as facilitators trained in PRIMA-P and reference sites of 3 target districts.
(5) Sustainability
Sustainability is considered to be Highly Potential if technical assistance is provided for the following
reasons:
Policy aspect: Policy environment relevant to PRIMA-P model is expected to continue in terms ofeducational development, decentralization policy and regional development policy as described earlier.
Institutional aspect:
Continuation and Expansion to non-target sub-districts: All the 3 districts have clear idea about function of
KITs. They plan to reorganize KIT membership and cover all the education related stakeholders. Notable
points here is that KITs are being institutionalized in the present educational administration structure after
the Project. As for TPKs, it is still unclear that they will continue to function fully in all the 3 districts.

xiiiExpansion to non-target districts: Head of Provincial Education Office confirmed that they will perform
a role of facilitator to disseminate the good elements of PRIMA-P to non-target districts. Combined withsocialization of FEP, PRIMA-P model will also be introduced to non-target districts, which already started
in 2 districts (Sidrap, Parepare). In addition, outputs of PRIMA-P such as formats of school and financial
plans have started to be utilized in educational administration at district level (Jeneponto), which is a sign ofinstitutionalizing good practices of PRIMA-P.
Technical aspect:
Continuation and Expansion to non-target sub-districts: All the 3 districts have sufficient understanding of
PRIMA-P model. However, they have not become technically sufficient in facilitating and supporting school
operations of PRIMA-P model. Generally speaking, schools in target districts have gained experiences tobe able to continue the activities of PRIMA-P. Regarding Lesson Study, pilot schools and MGMPs will
be able to manage to continue. There are also cases that Lesson Study has been expanded to non-target
areas. However, technical assistance is required to assure the quality. It would be difficult without technicalsupport to keep upgrading their knowledge and skills of Lesson Study activities.
Expansion to non-target districts: Provincial Education Office is able to introduce good practices of
PRIMA-P with basic understanding of the effectiveness of the PRIMA-P model. However, they are not able
to provide technical support independently. It would be possible, if they outsource such services.
Financial aspect:
Continuation and Expansion to non-target sub-districts: All the 3 districts have already secured funds for
FY2010 (approved) and are proposing for FY2011 as well. Funds for FY2010 include, among others, KIT
operational costs and cost for expansion to new sub-districts. In addition, they mentioned they would use
BOS and FEP funds available for primary and junior secondary schools.
Expansion to non-target districts: Provincial Education Office expressed to allocate budget including thecost for technical assistance.
3-3. Factors that Promoted Realization of Effects(1) Factors Concerning to Planning
Utilizing resources and experiences from other Projects: PRIMA-P has benefitted a lot from the longexperiences of former education projects REDIP (for PSBM) and SISTTEMS (for Lesson Study). Present
PELITA also has provided opportunities to PRIMA-P C/Ps to gain hands-on experiences as well as insight
into the PRIMA-P model.
(2) Factors Concerning to the Implementation Process
MONE’s policy and BERMUTU: MONE’s policy to introduce Lesson Study nation-wide as well as
BERMUTU in developing capacity of teachers have contributed to raising motivation to introduce Lesson
Study in PRIMA-P sites.
3-4. Factors that Impeded Realization of Effects(1) Factors Concerning to Planning
Time constraint in Cycle 1: The cycle 1 was completed in a short period as the Project started in December
2007 (delayed by 3 months from planned in R/D). There were only 7 months to establish KITs, TPKs,
School Teams and to complete all the tasks by the end of school calendar year, June 2008. As a result,socialization was not sufficient and concept/philosophy of PRIMA-P was not fully understood byxivstakeholders in Cycle 1.
(2) Factors Concerning to the Implementation Process
Misperception on “Free Education”: There has been a misperception about “Free Education” with regards to
its stance on community participation. People received a wrong message that “community participation was
no longer required”. Due to such misunderstanding, the Project implementation was affected negatively inincreasing community participation.
Weak communication at provincial level: Communication between JICA Expert Team and C/Ps at provincial
level was not sufficient. Because of this, it took time for Provincial Education Office to take a leadershipin supporting and expanding PRIMA-P model after the Project. If both sides have had more intensive
communication, Provincial Government would have acted earlier.
3-5. Conclusion
The Project has almost achieved the initially targeted purpose and the Project Purpose is seemed to beachieved at the time of the project completion. As for Five Evaluation criteria, Relevance, Efficiency, Impact
has been evaluated as High, Effectiveness has been evaluated as “High at district level (including subdistrict and school)”, and Sustainability as “Highly potential if technical assistance is provided.”
3-6. Recommendations
The following issues are discussed as recommendations;(1) For Target Districts
To develop an operational program that districts can handle within their capacity and to consider carefully
the coverage or size of the program, how much technical support is necessary for experienced sub-districts
and new sub-districts and who will take this task.
(2) For South Sulawesi Province
To continue disseminating good lessons from PRIMA-P, since community participation, bottom-up
planning, and involvement of all stakeholders are the main strengths of the Project from the provincial pointof view and the idea of individual introduction seems feasible
To conduct intensive socialization for the Program for more effective utilization and better management of
the funds.
(3) For JICA
To consider the possibility and enhance with relevant authorities of utilizing field consultants for ensuring
sustainability.
To be expected to monitor the progress of the Project after its completion with other project including
PELITA project.
3-7. Lesson Learned(1) Mechanism that Contributed Achievement of the Project
The Project has achieved some education improvement in the 3 districts in the following areas
Quantity: increased enrolment, decreased drop-out;xv

Quality: increased UN score, improved teaching-learning processes;
Management at school levels: democratic decision-making, transparent financial management, increased
community participation, increased motivation and ownership, better collaboration with MONE schools and
MORA schools;
Management at district level: increased motivation, better collaboration among district education
stakeholders, increased planning capacity.
These improvements can be attributed to the mechanism employed by the Project such as:
Two-level (schools and sub-district level) intervention;
Creation of a mechanism where MONE schools and MORA schools can work together;
Block grant utilized as a training tool;
Enforcement of the regulations related to financial management and transparency; andThorough socialization and technical support(2) Importance of socialization
Socialization should not be disregarded. The evaluation team observed that the inadequate socialization
during the first year on the concept of the Project, particularly regarding TPK, had a negative impact
until now. TPK in some sub-districts are considered as principals’ group meetings with little community
involvement. Similar cases were found in Free Education Program. The guideline of the program has
already been distributed to each district, however, district officials are not yet confident in procedures of the
program including budget items. Misunderstanding of the word of “Free Education” by the community canbe also attributed to inadequate socialization.
(3) Importance of facilitation / technical Support
PRIMA-P demonstrated that thorough facilitation and technical support brought definite changes in mindset and behavior of stakeholders. The intensive facilitation and technical support was particularly importantin the first 2 or 3 years of the implementation to make the introduced new concept and procedures regular
practices. This lesson can be applied in improving management of other education programs of the districts
and the province including BOS and Free Education Program.
(4) Designing integration of education sector and health sector
In original roll-out plan of South Sulawesi Development Program, PRIMA-P was sought to be integrated
with the one in health sector into one social development project in the second phase of the Project.
Under this understanding, both PRIMA-P and PRIMA-K employed a bottom-up planning and block grantmechanism, and intentionally choose the same target districts (Barru and Wajo). The impacts were observed
mostly at school and district level where health education was promoted in Action Plan activities, and
BAPPEDA took leadership in coordinating two sectors and in promoting bottom-up planning mechanism
as one of approaches for district development. However, integration in terms of management and financing
for service delivery was found impossible and consequently, in the beginning of the second year of
implementation, the decision was made not to pursue integration of the two sectors.
(5) Benefits of combining Action Plan Activities (participatory school-based management) and Lesson
Study
PRIMA-P introduced Lesson Study to the schools and MGMP that have already experienced in Action Planxvi

Activities for a half-year. This experience seems to have raised their readiness in starting Lesson Study.
According to the Project team, the following differences were found between PRIMA-P target schools(with the experience) and PELITA4 target schools (without the experience); such as, school atmosphere andownership, openness of schools, collegiality of teachers, management capacity of principals, and vision forwhole school development.
(6) Designing integration of activities to improve management and quality
Both Action Plan activities and Lesson Study have shown notable outputs, and additional effects byintegrating two models also existed as described earlier. However, it is difficult to evaluate the completenessof “the integrated model” for management and quality improvement. This may be because mutual
discussions was not sufficient to draw a scenario regarding what was expected from the integrated model,
to what extent the Project should achieve, and how it would be expanded, particularly for the part of Lesson
Study.
(7) Activities to support the provincial initiatives
In designing this Project, it had been assumed that once a good model is established, the provincial
education office will eventually disseminate the model and incorporate good practices in their education
programs. However, ordinarily, it takes time for the achievement at districts to be recognized and to be wellunderstood by the province as found in PRIMA-P. If the stronger initiatives from the province were sought
during the Project period of 3 years, some activities could have been included in the project design which
directly meet the needs of the province and support the provincial role as a facilitator such as developmentof educational profile of the province, and dissemination workshop of good practices not only limited to
PRIMA-P. Counterpart training in Japan for provincial counterpart could have further motivated them.
(8) Lengths of the projectThree years of implementation is insufficient for the new learning to be fully institutionalized and integrated
in the existing system, particularly when it needs to tackle the mind-set of the people such as democratic
decision-making and transparency. PRIMA-P has achieved the project purpose, and its efficiency isevaluated high, however, it does not reach at the level of the complete institutionalization of PRIMA-P
essence, where districts and schools internalize the new learning into their mind and behavior as wellas their work processes. If a project aims at developing a model and further expecting the complete
institutionalization and dissemination by the counterparts, the project period should be longer.

4

In PELITA, which is another JICA-supported education project, Lesson Study sites do not have activities for school-based management.

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