Assignment deport FOR IIÍTÜlIIAL USE

RP/1984-85/II.2.S NOT FOR GENERAL DISTRIBUTION

Support for activities designed
to improve coordination between
formal and non-formal education

I N D O N E S I A

SECOND NON-FORMAL EDUCATION PROJECT

by Ettore Gelpi

United Nations Educational, Scientific and

Cultural Organization

Paris, September 1984

Serial No. FMR/ED/SCM/84/161

Assignment Report
RP/1984-85/II.2.3
FMR/ED/SCM/84/161(Gelpi)
24 September 1984
 (i)

P R E F A C E

The mission described in the present report was carried out from
6 to 18 March 1984 at the request of the Government of Indonesia, and
was funded by Unesco under its Regular Programme for 1984-1985.

The terms of reference of the mission were as follows:

"a) to assist in making a work plan for the project

b) to indicate resource personnel available in non-

formal education

c) to indicate the best institutions in the field of

non-formal education in the region

d) to offer any other assistance to the Directorate

of Community Education (DIKMAS) in order to
facilitate the smooth running of the implementa-
tion of the project."

The following comments and suggestions are based upon documents

and articles, discussions with leaders, and visits in the field by
Ettore Gelpi, staff member of Unesco.
 (ü)

Page

PREFACE (i)

I. PRESENT SITUATION 1

II. SUGGESTIONS FOR THE FUTURE 2

III. FUTURE RESEARCH 3

IV. CO-OPERATION WITH UNESCO 5

Annex 1 - Non-formal education:

checking list 7

Annex 2 - List of persons consulted 10

Annex 3 - Bibliography 11
 - 1 -

I. PRESENT SITUATION

1. The first and second non-formal education projects can contribute to and
gain from other similar projects all over the world. This mutual inter-
national communication is a very profitable means of reinforcing the research
training and self-management capacities of the project:

(a) Implementation of non-formal education,-

(b) Direktorate Pendidikan Masyarakat (PENMAS) . ability to develop

and implement non-formal education programmes ,-

(c) preparation of a broad non-formal scheme for the entire country

is related and can be of help.

2. The positive discrimination of a target group of non-formal education (people

with the least advantages), the need for a permanent upgrading of PENMAS
staff, and the growing demand for non-formal education are not conflicting, but
complementary.

3. In this broader perspective, the non-formal education project can deepen its
knowledge of indigenous traditional non-formal education in rural and urban
areas. The project must not only emphasize one aspect of non-formal education.
The richness of cultural and non-formal educational traditions and of daily edu-
cation and culture deserve to be studied and to be fully understood by educational
policy makers and educators.

4. A preliminary analysis of existing literature (in English) reflects more

philosophical, moral and pedagogical values than the sociological, economic
and cultural dimensions of the individual and collective educational needs of a
rapidly changing society. This trend is reflected also in the documents available
for field workers and non-formal students. The excellent quality of educational
activities and material is not always accompanied by findings concerning economic,
as well as social and cultural trends.

5. Students, volunteers and field workers seem to be highly motivated. The demand
is real: both cultural and vocational interests are present in the community.
Sometimes linkages between the two need to be understood better by the students.
Information on labour market trends (formal and non-formal) are given, but some-
times are not sufficient.

6. The learning capacity and the educational creativity of the community deserve
further emphasis. Local communities are not only recipients of education,
they express and they can transfer knowledge and skills (culture, crafts, traditional
technology). Inventories of knowledge and skills can be of very high value for the
communities and for society.

7. As far as vocational skills are concerned, the opportunities to learn are not
sufficient to cope with the level of demand. Usually the agriculture environ-
ment is very rich in technology; that of culture is also rich and needs to be
further developed. Skills in high demand related to light industries, buildings,
health and management are not always present in the communities. Training and the
full use of available resources need to be planned in formal and non-formal educa-
tion activities. This training and planning can be the educational answer to open
and hidden unemployment, particularly in the urban and semi-urban setting.
 - 2 -

8. The broad and democratic participatory ideology of non-formal education

needs to be deepened by PENMAS itself, by the users of the system, and by
other agencies at the national and provincial levels. The representation of
PENMAS is still that of an agency for marginals. Potential users would multiply
rapidly if the numerous learning opportunities of PENMAS' programme were better
advertised.

II. SUGGESTIONS FOR THE FUTURE

9. Rapid changes in Indonesian society can easily be foreseen. Many factors will
affect both the systems of production and education: the integration of
Indonesia into the regional and international economies, the development of in-
dustrialization (labour- and capital-intensive), the introduction of advanced
technologies, the universalization of basic education, and the availability of mass
media. These developments will affect the content and structure of both formal
and non-formal education: new educational policies will need to be developed at the
local, provincial and national levels, it will no longer be necessary to legitimate
non-formal education, for non-formal education will be in high demand.

10. From this perspective non-formal education will be the key factor in the
development and management of an open and flexible educational system. Educa-
tion will take place at new times and in new locations, such as places of work,
the community, cultural structures, the media and associations. In addition to
the traditional systems of formal and non-formal education, more flexible systems
of educational provision, will be needed to accommodate learners.

11. Content and curricula will have to be enriched with subjects such as literacy,
theatre, advanced sciences and computer education. The transfer of technology
and training will go beyond the transfer of literacy and numeracy skills, with the
mastery of individual and collective self-learning skills becoming one of the most
relevant goals for education. A permanent flow of information has to reach non-
formal supervisors, trainers, field workers and students, for the non-formal and
formal education systems need to become learning systems.

12. The relationship between the productive system and education should not be
confined to that of vocational education; the relationship between culture and
education should not only be that of cultural inputs in the educational curricula.
Production, culture and education should continuously interact together. In this
respect, research, training, production, creativity and self-learning should be
linked in educational activities at all leveJs,? teachers and non-teaching personnel
should be educators themselves receiving permanent training. The use of engineers,
scientists, technologists, health workers, artists, craftsmen and skilled industrial
and rural workers as teachers will be necessary, for they can provide formal teach-
ing and important supervision during their apprenticeship.

13. The use of the media for formal and non-formal education will expand. Audio-
visual aids and mass media will require new attitudes and skills among educators
and students. New skills will allow for active participation in the production of
the educational contents of the media, and not only for its consumption. Traditional
media have to be studied and used. Developing demands in education and high levels
of motivation will require full use of the media at local and national levels.

14. Professional staff, volunteers and students should have access to rich, diversi-
fied and permanent education and training programs. Skills in research, and
attitudes towards research will have to be developed to allow a full understanding
 - 3 -

of the social and cultural framework of the learning environment, so diversified

in Indonesian society. The training should be ambitious and should go beyond the
specific tasks required for teaching literacy or a given skill. In the future
field workers, volunteers and students, will play a multiform educational role
in the communities, in the places of work of this society. For these various
reasons their curricula should be enlarged (more sciences and social sciences),
and their trainers should include scientists, technologists, artists, etc., who •
understand the relationship of their respective subjects to the lives of the
people.

15. The pointers to field workers (learners, learning materials, learning resources,
learning groups , learning facilitators, learning place, learning fund, learn-
ing programme, learning benefits)* should be related to the social and cultural
backgrounds of the villages and cities, and to the dynamics of the Indonesian labour
market.' PENMAS staff, field workers, community volunteers should be prepared to
cope with new multiform educational needs related to occupation, social life, geo-
graphical mobility, new technologies and new aspirations.

16. Volunteers are a must for non-formal education and the need for them will grow
as educational needs expand. But even with volunteers, non-formal education
will still require financing. In the cities, enough volunteers will not always be
available in relationship to demand, and a fast turn-over of volunteers will require
an increase in field workers, organisers and trainers. In some cases volunteers will
be specialized and they will join the professional staff.

17. National and international expertise, programme development, staff training,

materials development, management and building construction can be viewed from
the perspective of the pure maintenance of the system or of the possible transfor-
mation and expansion of non-formal education. In the latter case, pedagogical
requirements would need to be matched with broader knowledge and skills. Social
sciences, sciences and cultural understanding are the new inputs that would be
needed. The pedagogical and managerial improvement of the system must not be the
only goals of the second non-formal/education project, whose ultimate goals are very
ambitious (to increase "PENMAS' ability to develop and implement non-formal educa-
tion programs"). Institutions, associations and individuals engaged in research
and inactivities relating education with production and cultural development at
the national and international levels should contribute new inputs. Interests and
skills for action-oriented research, self -management, co-operative education and
self-learning will help the most as they are central to the proper functioning of
the project. National and international experts can play a positive role in non-
formal education if they have a full understanding of the goals, values, culture,
languages, philosophy of the Indonesian people in the various rural, semi-urban
and urban communities.

III. FUTURE RESEARCH

18. Literacy and non-formal education are related, for illiteracy appears as an
inadequacy of the formal educational system. Although non-formal education
has to cope with this significant problem, it should not confine itself to it but
should expand the meaning of illiteracy to incorporate the various skills that are
needed for survival in modern societies.

1. R. Dilts and Associate, "The Indonesian non-formal education project",

International Review of Education, Vol. 28, n° 2, 1982-.
 - 4-

19. Compulsory education for all does not diminish the relevance of non-formal
education. On the contrary, education raises educational expectations, and
schooling for all means new educational demands and aspirations. Out-of-school
education, youth education, adult education and education for the elderly will
develop quickly and as a result, educational planning should not confine itself
to schooling. A check list (A.nnex 1 ) was proposed to explore future topics for
research.

20. The preparation of a national policy for non-formal education, or even better
for lifelong education, can be one of the tasks of those engaged in non-formal
education. These policies will demand research concerning both existing educa-
tional structures and possible designs for new ones. Many potentially fruitful
topics of research exist: the capacity of formal structures to meet emerging
educational needs; the potential, as teachers, of individuals outside the teaching
profession (workers, artists, etc.); the characteristics of existing private non-
formal education; the relationship between popular day-to-day culture and school
culture; the patterns of geographical mobility (transmigrations, rural-urban
movements, etc.); the accessibility of formal education to the new educational
public; the characteristics of existing non-formal education (trades, leisure,
etc,), and of individual and collective self-learning.

21. As far as forecasting topics of a more educational nature is concerned, the

following subjects come to mind: the relationship between general and voca-
tional education in the curricula; the type of communication between the different
levels and sectors of the educational systems; the characteristics of appropriate
curricula for non-formal education in the initial and further training of teachers
and in the in-service training of youth and adult education leaders (in the place
of work, and in the community); the implications for educational curricula of
scientific and technological transfers, etc.

22. The rich cultural heritage and popular day-to-day culture can also become part
of the educational curricula: research can contribute to the understanding of
the educational dimension of the cultural heritage of the people. Rebuilding the
past to meet the challenges of the future also includes the reinforcement of the
full creative potential of each person.

23. Future research on non-formal education has to be centered on both the

aspirations and motivations of the people and the needs expressed by the five
year plan (1984-89). The dynamic nature of Indonesian society has resulted in the
emergence of new educational and cultural aspirations for ordinary people, ones
that, as yet, have not been adequately met by present educational institutions: a
rapidly developing country requires flexible formal and non-formal educational
structures, creative programmes and educational methods that reinforce individual
and collective self-learning.

24. The three major needs for development require major research concerning the
relationship between work and education :

(a) to meet the basic needs of the people (food, clothing, shelter);

(b) to provide employment opportunities; and

(c) to improve the Indonesian balance of payments.

Some of the areas that need future research are: productive activities in initial
training, educational activities in the place of work, new technologies and the
creation of jobs and sometimes also of unemployment, new values and aspirations

1. E. Salim, "General Trends in Indonesian Development", the Indonesian Times,

16 March, 1982.
 - 5 -

towards work among youth, alternative shifts in emphasis between the non-formal
and the more formal sectors of production and new policies of vocational training
(initial and in-service).

25. Evaluation of non-formal education cannot limit itself to determining the

level of programme participation; evaluation should analyse the effectiveness
of educational activities in relation to productive life, to physical and emotional
well-being, to preparation for a world of rapid change, and to the openness of people
for further education. The basis of peopxe : s motivation is a recurrent theme in
non-formal education: is motivation only a personal choice or a result of policies
concerning investments, salaries, social participation and cultural development?

26. Interdisciplinary contributions (education, social sciences, natural sciences)

as well as interministerial co-ordination (labour, education, agriculture,
industry, commerce, etc.) are required for research policy, implementation, training
and evaluation. Interdisciplinary contributions mean associating economists,
sociologists, cultural anthropologists, educators, etc., in the study of the emerging
realities of the rapidly developing Indonesian society.

27. The monitoring of the non-formal educational system and its dynamic maintenance
will demand the continuing evaluation of educational inputs and outputs. The
possibility of wastage of the high motivation of potential learners must be minimized.
Some indicators can be suggested to evaluate the external efficiency of the system:

(a) level of transfer and mutual exchange of knowledge and learning

at the local and national levels;

(b) level of use of available human resources in the community;

(c) possibility of further individual and collective self-learning;

(d) rate of creation of new jobs;

(e) relevance of social and cultural participation;

(f) level of cultural creativity (formal culture and culture in

daily life) ;

(g) characteristics of attitudes and skills towards co-operation;

(h) capacity of the education system to accommodate the learners in

relationship to their needs (new spaces and times, new educators);

(i) level of collective financial participation for the maintenance

and expansion of the system.

IV. CO-OPERATION WITH UNESCO

28. The second non-formal education project includes national and international
components. For the implementation of a technical assistance programme in
support of the project, the Government of Indonesia can request multilateral or
bilateral aid through Unesco in order to obtain both the services of a foreign
specialist and training abroad. If an agreement could be signed between the
Government of Indonesia and Unesco through a Funds-in-Trust arrangement, Unesco
could recruit consultants, manage fellowships, contribute to the organization of
training activities, and participate in the formative and summative evaluation of
project implementation.
 - 6 -

29. During the mission, the Indonesian authorities were informed of the resource
persons available in non-formal education and of some of the institutions
in the region to be contacted. Multilateral and/or bilateral inputs for the second
non-formal education project were discussed. The Indonesian authorities will
indicate to Unesco forms and modalities of the desired type of co-operation.
 ANNEX 1

NON-FORMAL EDUCATION: CHECKING LIST

Theory

1. History of non-formal Indonesian sducation

2. Institutional, individual and collective goals, values

and objectives of non-formal education

3. Theory of non-formal learning

4. Methodology of non-formal educational research

Policies and Administration

1. Formal and non-formal education in Indonesian educational

policies

2. Social and labour legislations and non-formal education

3. National and local financing

4. Macro and micro planning

5. Central and self-managed administration

Structures

1. The non-formal dimension of formal structures (initial

training and further training): schools, universities,
museums, libraries, cultural centres, vocational training,
etc.

2. Non-formal structures of education for all ages of life:

place of work, mass media, family, associative life etc.

3. Individual and collective self-learning.

The Actors

1. Students

2. Teachers

3. Educators other than teachers, health workers, cultural

organizers, and so on

4. Parents and their organizations

5. Communities
 - 8 -

6. Educational, cultural and social movements

7. As sociation s

8. Enterprises (state and private capitals, co-operatives

self-managed)

9. Artists, scientists

V. Demography and Ages

1. Demographic trends and schooling

2. Education (statistic data) of children (pre-school, school

and out-of-school education)

3. Education of youth (school and out-of-school education)

4. Adult education (formal and non-formal)

5. Third age education (formal and non-formal)

VI. Educational Time

1. "Non-formal Education" time

2. Working time

3. Leisure, family, associative life

4. Transition between education and work

VII. Educational Space

1. Community

2. Place of work

3. Home

4. Educational and social institutions

5. Associations

VIII.Educational Contents

1. Sciences

2. Arts

3. Crafts

4. Technologies

5. Human, social and economic sciences

6. People culture
 _ 9-

7. Poetry

8. Agricultural, handcraft, industrial, tertiary

(culture, health, administration, etc.) production

9. Scientific and technological research

IX. Methodology and Technology

1. Analysis of educational needs (research, participatory

research)

2. Analysis of motivations

3. Self-education

4. Formative and summative evaluation

5. Distance education (by mass media, computer, satellite,

correspondence, etc.)

6. General and local preparation of educational material

7. Central and local preparation of educational contents and

curricula

8. Transfer of training
 - 10 -
, ANNEX 2

LIST OF PERSONS CONSULTED

Indonesian National Commission Soepojo Padmodipoetro

for Unesco Hasnah Gasim

Directorate of Community Education H. Moh Adnan

(DIKMAS) - Jakarta Anwas Iskandar
W. P. Napitupulu
Pepep Sudrajat
Suyono Suharyo

National training centre Zainudin Arif

(Lembang)

National training centre Director of the Centre

(Bandung) Officers in charge of 3 non-
formal educational activities
in Bandung

Provincial training centre Endro Soewarjo

(Semarang) Rodji
The participants of the ongoing
training session for field workers
Officers in charge of 3 non-formal
educational activities in the province

United Nations Children's Fund Mr. L.J. Leefers

(UNICEF) - Jakarta Senior Programme Officer
Mr. F. Muslin

World Health Organization Mr. H.I. Monga

(WHO) - Jakarta Administrative Officer

United Nations Development Programme Mr. F.W.M. Von Mallinckrodt

(UNDP) - Jakarta Deputy Resident Representative II

International Labour Organisation Mr. W.G. Durr

(ILO) - Jakarta Chief Technical Adviser
Vocational Training Project

Food and Agriculture Organization of Dr. D. Bap Reddy

the United Nations (FAO) - Jakarta FAO Representative

UNESCO (Jakarta) Dr. V. Prakash

Unesco Representative
 - 11 -

ANNEX 3

BIBLIOGRAPHY

D.R. Evans, "Ghana and Indonesia: reform in non-formal education at

the community level, Prospects, Vol. XI, n° 2, 1981. pp. 225-241

Indonesia, Indonesia: implementation of a large-scale nonformal education

project, Ministry of Education and Culture/Massachusetts, Centre for
International Education, 1982. 192 p.

Indonesia, Report on literacy and adult education programme in the

Republic of Indonesia (1979/1980), Ministry of Education and Culture,
Office of educational and cultural research and development, 38 p. Mimeo.

Indonesia, What is package "A"? A Tool of Kejar for Educational Equity,

Department of Education and Culture, 1979. 18 p.

A. Iskandar, PENMAS concept of learning (a pre-proposition of discussion)

Jakarta, Direktorat pendidikan masyarakat,2 November, 1977. 15 p.

Lee Khoon Choy, Indonesia between myth and reality, Singapore, Federal
Publications, 1977. 222 p.

Manzoor Ahmed (Ed.), "Formal, nonformal and informal structures of learning",

International review of education, Vol. 28, n° 2, 1982. 289 p.

W.P. Napitupulu, Non-formal education strategies and management, the Unesco

Regional Office for Education in Asia and Oceania, 1978. 32 p.

W.P. Napitupulu, The implementation of the package a Kejar program: the

present challenge, Jakarta, DepartemenPendidikan dan Kebudayaan, 1980. 25 p.

W.P. Napitupulu, Illiteracy eradication programme in Indonesia (the learning

package a Kejar Programme) , Jakarta, Departemen Pendidikan dan Kebudayaan,
1981, 35 p.

W.P. Napitupulu, Non-formal education strategies and management, The Unesco

Regional Office for Education in Asia and Oceania, 1978. 32 p.

W.P. Napitupulu, "Each one teach ten: literacy in Indonesia", Prospects,

Vol. XII, n° 2, 1982. 220 p.

W.P. Napitupulu, Decentralization of the resource structure - its linkage

with learners' needs and interests, Jakarta, Departemen Pendidikan dan
Kebudayaan, 1983. 17 p.
 - 12 -

Unesco, Non-formal education in Asia and the Pacific - An overview, Bangkok,

Unesco Regional Office for Education in Asia and the Pacific, 1982. 69 p.

World Bank, Indonesia - Appraisal of a Non-Formal Education Project,

Report N° 1606b-IND, August 19, 1977. 66 p.

World Bank, Indonesia - Second nonformal education project, Report N° 4595-IND,

October 13, 1983. 52 p.