Photo: Freepik.com Options to Improve Indonesia’s Inclusive Education Curriculum Korotkov, Kim and Yarrow, Noah Options to Improve Indonesia’s Inclusive Education Curriculum This report was prepared by: Kim Korotkov and Noah Yarrow. Financial support for this report was provided by the Government of Australia’s Department of Foreign Affairs and Trade through the Australia-World Bank Indonesia Partnership (ABIP). The team thanks the Australian Government for their generous support. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of the Executive Directors of The World Bank or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. 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The purpose of this policy note (PN) is to provide initial support and information to the Ministry of Education of Indonesia in their quest for an improved national curriculum with respect to inclusion of all learners. The hope is that by sharing experience and evidence from other countries, Indonesia may with greater confidence more rapidly select the most promising approaches for their current political and social context. This work is supported by DFAT under the ABIP Trust Fund.1 This PN does not include a review of Indonesia’s Inclusive Education policies and legislation. A detailed review of that work can be found in the 2021 Policy Note, Embracing Diversity and Inclusion in Indonesian Schools – Challenge and Policy Options for the Future of Inclusive Education (World Bank, 2021). The World Bank is committed to ensuring that all WB-Financed education programs and projects are disability-inclusive by 2025. 1.0 Introduction The global vision for an evolving model of inclusive supports the “development of their personality, talents education is one that ensures inclusive and equitable and mental and physical abilities to their fullest potential”. access for all learners regardless of ability, identity, or background. Since the release of the UN Convention Many years after the 1994 Salamanca Agreement and on the Rights of Persons with Disabilities (Article 24), the Framework of Action was adopted by UNESCO, the 147 countries have signed and 97 have ratified the international community is being asked again to commit convention (CRPD) including Indonesia in March 2007. to equitable and inclusive education, in time for the UN‘s In 2015, the United Nations general assembly adopted 2030 sustainable development goals (SDGs) (AuCoin, a series of seventeen sustainable goals to be realized Porter, Baker-Korotkov, 2020). While progress has been by 2030. The 2030 agenda is “disability-inclusive made in many countries, the journey towards inclusive and highlights the need to empower persons with education is far from complete. A renewed interest disabilities.” (WB, 2018). Key to its success is the fourth and sense of urgency around the 2030 SDGs is taking sustainable goal to ensure quality education, more place, requiring countries to step-forward, strengthen specifically, it is to ‘ensure inclusive and equitable quality and intensity their efforts to meet their obligations to the education and promote lifelong learning opportunities Convention. for all” (United Nations, 2015). In its support of the Salamanca Agreement and the The 2008 United Nations Convention for the Rights of CRPD, the Indonesian Ministry of Education and Culture Persons with Disabilities (CPRD Article 24) states clearly has defined inclusive education as, “an approach to that all children have the right to quality education that meet the educational and learning needs of all children, 02 focused specifically on those who are vulnerable, to be amended.The Master Plan identifies seven marginalized and neglected, (including children with essential foundations that provide support to inclusive special needs).” (MoEC, 2019). The Master Plan for the education. Inclusive education embraces all children, Development of National Inclusive Education 2019-2024 is child-centered, respects and accepts differences provides a roadmap for realizing and improving inclusive and diversity, is accessible, included teachers working education in Indonesia. It is comprised of three stages in teams, involves parents, and curriculum, learning of activities: preliminary, implementation and final stage, methods, and assessments are personalized to the designed to provide guidelines for local, provincial, needs of the child (MoEC, 2019). and national implementation. The recognition that an inclusive education system is to be flexible and that While progress has been made in many areas of the existing system must adapt to child (MoEC, 2019) inclusive education and ensuring that all learners instead of expecting the child to adapt to an inflexible meet their full potential, there are still gaps that exist system is worthy of noting and is to be commended. between research and practice (Hata et al., 2021; Afkar et al., 2020; Béteille et al.,2020; Hosshan et al., 2020), The commitment of the Indonesian government towards including educator support for inclusive education, inclusion is to be acknowledged and celebrated, access and equity, quality of teaching and learning, however, such a change requires sustained effort and curriculum design and delivery. In operationalizing and engagement to meet multiple challenges and the plan for inclusive education, consideration should opportunities. In its 2021 review of Indonesia’s inclusive be given to the development and implementation of education policies and regulations, the World Bank inclusive curricula. This is an area that provides an found that while Indonesia has made considerable opportunity for Indonesia take the lead and to build on, progress in establishing a solid policy framework, both as a country and as an international leader. implementation remains a challenge due to a range of issues (WB, 2021). The goal of implementation This paper outlines the guiding principles, benefits, and within five years was ambitious prior to the onset of indicators of an effective inclusive education system the recent global pandemic and despite a sense of with an emphasis on inclusive pedagogy, curricula urgency to provide for a focus on learning recovery and supports, making the case for the why and how of and accelerated learning for all learners, it may need inclusive education. 2.0 Guiding Principles for Inclusive Education While the international body of research on inclusive • Ensures learning for all education continues to grow and the global community moves closer to a common definition and • Respects basic civil, legal, and human rights understanding, implementation is highly variable according to local contexts. One of the most significant • Is delivered in an accessible environment shifts in recent years has been to conceptualize inclusive where all students and staff feel safe, education not just from a one-dimensional approach, that welcome, and valued of a special education and disability lens, but to one that is focused on strengthening whole education systems to • Removes barriers to presence, participation, support all learners. As we work to strengthen inclusion, and learning, and provides reasonable we strengthen our schools (Porter & AuCoin, 2012). accommodations There are guiding principles interwoven throughout legislation, policies and frameworks which inform our • Is not a one-size fits all model, but is flexible conception that inclusive education: and responsive to learner needs 03 3.0 Ensuring Learning for All: Impacts of Inclusive Education All children benefit from inclusive education. As they were not adversely affected (Kart & Kart, 2021; classrooms become more diverse, it is important to Hehir et al., 2016; Kalambouka et al., 2007). Similar recognize the benefit of inclusive education for all findings were found by Hehir et al. (2016) who reviewed learners, those who are neurodiverse, those who over 200 studies in 25 countries, for example, in a are marginalized and those who are not. Factors that district in Boston, inclusive schools demonstrated that a impact access and equitable inclusive education are school could be inclusive and high performing. Several numerous, but include ability, gender, poverty, and lack high schools with an inclusive model performed higher of universal access. Inclusive education allows schools than the city and or state average on Language Arts to develop and foster a shared commitment to a culture and Math assessments. In a recent review of inclusive of respect and belonging, that is representative of their education in Southeast Asian countries, it was noted that growing communities. Learners in inclusive classrooms while inclusion is not yet fully embedded in education are less prejudicial and more accepting of their peers systems, governments have expressed commitment and (Hehir, Grindal, Freeman, Lamoreau, Borquaye & Burke, progress is underway in Indonesia, Malaysia, Philippines, 2016). Appreciation for the strengths, skills, passion, and Singapore and Thailand (Hosshan et al., 2020). knowledge that all learners bring to the classroom helps set the stage for an accepting and inclusive community In New Brunswick, Canada, teachers reported an and future workforce. increase in student achievement and engagement in high school math scores after participating in action The positive impacts of inclusive education include research on Universal Design for Learning within social, academic, community and economic benefits. inclusive classrooms. They also reported teachers were There is clear evidence that inclusive education can better equipped to teach multiple ability levels and to provide significant benefits for students with and use multiple strategies (Beamish, Brown, King, Power, without disabilities (Hehir, Grindal, Freeman, Lamoreau, 2015). Research across six Indiana school districts Borquaye & Burke, 2016). Student with disabilities in indicated students without disabilities educated in inclusive classrooms outperform similar students in inclusive settings demonstrated greater academic non-inclusive settings and can be twice as likely as progress in mathematics and reading (Cole, Waldron, their non-included peers to enroll in postsecondary & Maid, 2004), and across the largest school district education (Baer, Daviso, Flexer, Queen, Meindl, (2011). in Toronto, Canada included learners outperform their Inclusion can support the social and emotional learning peers in special or segregated schools (Parekh, Brown, and development (SEL) needs of all learners. There is & Zhengu, 2018). greater peer acceptance and friendships established, more likelihood of joining a school group/club, Students who have been included are more likely to be acceptance, understanding and tolerance of individual attend postsecondary education, and to be employed differences occurring in inclusive classrooms. (Kart & or living independently (Hehir, Grindal, Freeman, Kart, 2021) These areas are likely of importance to the Lamoreau, Borquaye & Burke, 2016.) Previously Indonesian curriculum revision process, which includes marginalized students have higher rates of attendance, specific character development-related goals. are less likely to have behavioral problems, and are more likely to complete secondary school than students While it has been mostly accepted that inclusive who have not been included. This continued impact education can benefit learners with disabilities, there is then felt within workplaces who reap the economic have been concerns raised about the impact on the benefit of an engaged and prepared workforce. As this learning and achievement on non-disabled learners. body of research continues to grow, the belief is that in Drawing on a series of 26 studies in the United States, being part of an inclusive education environment, skills Australia, Canada and Ireland, researchers concluded like, “leadership, critical thinking, problem-solving and that inclusive education was associated mainly with cross-cultural awareness will continue to develop and positive or neutral effects for neurotypical learners, and grow. 04 Operationalizing inclusive education requires awareness of gender equity (UNESCO Global Education establishing school-based indicators that can be Monitoring Report, 2020, p. 1, 39). Lesotho and Rwanda adapted to the local context and a school improvement have made progress in providing professional training framework for continuous monitoring. To avoid system for pre-service and in-service teachers and school and change fatigue, priorities are determined to allow leaders (World Bank, 2022; UNICEF, 2021). Several for a stepped approach and a greater chance of South Asian countries have embedded disability success and sustainability. While this report outlines inclusion in their strategic education plans, including several overarching indicators of inclusive education, it Bhutan, Maldives, Nepal (Grimes et al., 2021). Over the would not appropriate to develop and prescribe local last decade, Indonesia has made progress on gender indicators without the request and involvement of the and education resulting in the accessibility of education Indonesian government; this process at the minimum to disadvantaged children, improved literacy rates, would require a co-constructive approach. school enrollment and employment (World Bank, 2020). More recently, in March 2022, the OECD released its The field of inclusive education is quite broad, and report on the review of inclusive education in Portugal, while there is still work to be done, countries have highlighting successes and challenges, four years made progress toward making their education systems after that country enacted a decree law on inclusive more inclusive. Countries such as India and Hungary education. Despite progress being made, challenges have begun to take steps to review and revise remain in ensuring that countries action their textbooks to remove gender stereotypes and develop commitment and that work continues to be ongoing. 4.0 Responding to Learner Needs: Development and Implementation of Inclusive Curricula An inclusive approach to the development of and 4.1 Elements of Inclusive Curricula implementation of curricula requires inclusive content, textbooks and resources, and instruction We define inclusive curricula as those that: and assessment practices that reflect the needs of all learners. It is through curriculum that the principles 1 Consider all learners in content and of inclusion are put into action (IBE, 2008, p.22). The methodology, and values their rich diversity, complexity and diversity of classrooms and students previous knowledge, and experiences in the 21st century places high demands on the 2 Are flexible while maintaining high classroom teacher to provide effective and inclusive standards with appropriate resources and educational programming and instruction (Baker- supports, including materials, training, Korotkov, 2020), and teacher success in meeting technology, personnel these increasing demands requires support. Inclusion requires more than just placement in the classroom 3 Are accessible and remove or eliminate with ones’ age-appropriate peers. Educational barriers to participation and learning policies and government commitments alone cannot guarantee the successful inclusion of students in general education classrooms, (Mitchell, 2014) unless 4 Incorporate formative assessment they are actioned and embedded into the prescribed curricula and instruction with appropriate resources and supports. In developing inclusive teaching, teachers must be aware of how they teach (pedagogy), what they teach (curriculum) and how they will monitor learning (assessment) for all learners (Brussino, 2021). 05 4.2 Consider all learners their efforts and help teachers create and support inclusive learning environments. Flexibility can refer Learners are more engaged and learn best when they to teaching practices, prioritizing curricular outcomes, feel connected and see themselves and their context and allowing for levels of adjustment to meet learner represented in curricula, including content, textbooks, needs. Curricular adjustment or modifications allow materials, and resources. Examples include avoiding for curricular outcomes to be altered, deleted, or even gender-based misrepresentation or stereotypes in added to address a learner’s specific needs, while still resources and materials, acknowledging and including maintaining the integrity and intent of the curriculum. history of groups who were previously excluded (for The learner can participate using adapted materials and, example persons with disabilities, indigenous peoples), in some cases, modified expectations. New Zealand, and being culturally responsive to respect learners’ Portugal, Canada, Australia, and the United States culture and prior experiences. It is respectful of student of America are just a few examples of countries who and staff diversity in terms of race, color, religion, allow curriculum adaptation to occur at the local level. national origin, age, disability, marital status, real or Processes developed at the Ministry or district levels perceived sexual orientation and/or gender identity, provide guidelines for school-based teams to make and sex, social condition, or political belief or activity. support these decisions locally. During the development phase, a curriculum framework based on principles of inclusive education can support writers and advisory teams throughout the process. In 4.4 Removing barriers to access and 2016, the Kenyan Institute for Curriculum developed learning a similar framework to support all learners (UNESCO Global Education Monitoring Report, 2020, p. 115). The Curriculum accessibility is a varied concept. For some Indonesian national curriculum has been updated many students it can refer to accessing the physical learning times over the last sixty years, with 2024 set as the next environment and for others it can include the strategies, review date, taking into account a period of learning technologies or accommodations/adaptations that recovery due to the global pandemic. In the recent allow a learner to participate in the curriculum without UNESCO and UNICEF collaborative report, analyzing changing the curricular content. The intent is to remove the effects and responses to COVID-19 in Indonesia, barriers while allowing students access to learning the MoEC has a clear vision for the future of their while they master and demonstrate their knowledge education system, one that includes “prioritising local of the same instructional content and outcomes as values, building competency and children’s character their peers. Examples include Braille, large print, extra development and inclusion, and using learning time, assistive technologies, and reduced assignments. materials designed and based on local wisdom” (2021). Effective curriculum reform to equip students with the Moving forward with an inclusive curriculum will help knowledge, skills and competencies for the future will all learners feel that their voices are represented and require flexible and adaptable teaching and learning an increased sense of belonging (Baker-Korotkov, materials and strategies and teacher training to be 2020; Mukmimin et al., 2019). An understanding that successful (Grimes et al., 2021; OECD, 2020). all students can learn and are valued is central to the In the past decade there has been increased focus pedagogical approach to inclusive teaching (Brussino, on the Universal Design for Learning (UDL) framework. 2021). UDL uses a series of guidelines and principles to remove barriers to learning while building in flexibility from the beginning. The guidelines of engagement, 4.3 Flexibility and high standards with representation and action and expression aim to appropriate resources and supports improve accessibility and participation for all learners to meet curricular outcomes (Nelson, 2014). UDL allows The communication of high standards and expectations teachers to be responsive to the needs of students, and in curricula is key to ensure learners are prepared to can be applied to curriculum design, assessment, and meet their goals and outcomes and to be successful, pedagogy (OECD, 2020). while allowing for flexibility. The use of rubrics and checklists, with clear observable indicators help students know what is expected of them to focus 06 4.5 Formative Assessment assessment for learning, a checkpoint to gauge student learning, e.g., journals, checklists, quizzes, in-class The goal of formative assessment is to monitor student discussion questions, classroom activities, homework. learning to provide ongoing feedback so that teachers Inclusive education is not a one-size fits all approach. can adjust their instruction to be responsive and support Teachers can use formative assessment to support the the learning process, (Connell, 2020; Finnegan, Miller, successful inclusion of all learners and use multiple and Randolph & Bielskus-Barone; Davies, Herbst & Reynolds, varied method to assess for feedback and opportunities 2012) and students can develop insights into their own (UNESCO Global Education Monitoring Report, 2020, learning and progress. Formative assessment does p 130). In every classroom, there is variability among not replace summative assessment, which evaluates learners and formative assessment can help teachers be progress at the end of a unit/term, e.g., final project, responsive to learner needs and determine if students assignment, midterm, or final exam. To support inclusive require additional support or additional challenge to curricula, formative assessment should be seen as meet outcomes. 5.0 Supporting Effective Inclusive Education Supporting effective inclusive education requires support teams are also crucial, but do not replace building on principles and inclusive curricula. strong leadership in the school administrator, they are Second only to classroom instruction, educational complementary, not supplementary. leadership and administrator support is the driving force behind inclusive education and change (Fullan, As countries continue to make progress towards 2014.) In inclusive schools, leaders are engaged, help inclusive education, a system for effective create a sense of belonging, facilitate relationships implementation must be in place. Communication and among staff and establish a safe environment (Sands, accountability are key, especially in making to shift Kozleski & French, 2000, p. 128). Effective leaders are from a one-dimensional focused direction to one that also proficient in both instructional leadership and embraces inclusion for ALL learners. Without a clear organizational leadership. Evidence from studies in process for oversight and monitoring, the gap between Indonesia, Bangladesh and India show the importance policy and implementation will widen and intent will not of effective leaders and their involvement in school be realised (Hata et al., 2021; Baker-Korotkov, 2020). improvement, teacher job satisfaction and improving The involvement and voice of local stakeholders, student learning (Béteille, Tognatta, Riboud, Nomura, including community, advocacy, families and especially & Yashodhan, 2020, p. 169-171); Hasan, Monypenny & the learners themselves provide a necessary connection Prideaux (2012). to develop and implement conditions for success. Supporting effective inclusion cannot happen without Effective leadership and especially effective inclusive comprehensive and ongoing professional learning for school leadership cannot be realized by one individual. civil-servant teachers, contractual teachers and all those It is most effective when carried out by a small group working in the classroom. From the Ministry level to the of educators, with the principal as the promoter and local schools, across pre-service and in-service groups, the cohesive force (Korotkov-Baker, 2020; Fullan, 2014; there is a responsibility to equip educators with the Dufour & Marzano, 2009; Hattie, 2009; Marzano, 2003). information, tools, and strategies to be successful so Moving to a more distributive and interactive model of that in turn our learners can be successful. The train the leadership will see greater transformation (Anderson, teacher model in Vietnam is an example of collaborating 2008). This will require trained and committed teachers with universities to ensure pre-service and in-service and leaders and require communities of support and teachers have the knowledge and skills needed in an practice. Leadership support via core leadership teams, inclusive learning environment (WB, 2021). professional learning communities (PLCs), student 07 These changes in instructional practice, student engagement, teaching materials and education philosophy require both time and financial resources. The precise costs depend on the scope of the changes envisioned, targets being set, the time frame and the scale of the education system. In Indonesia, successful implementation of a more inclusive curriculum is expected to involve expenditures at the central level (for example textbook design, support materials for teachers and school administrators, trainings for school administrators and teachers) as well as at the regional and district level (workshops to address regional or school-specific challenges, coaching and school visits to provide ongoing encouragement and technical support). 6.0 Conclusion 6.1 Inclusive education is a journey 6.2 Intentional and purposeful approach The path towards inclusive education should be seen as a Implementing and maintaining a focus of inclusive journey, one that will take time and will continue to evolve. education for ALL requires an intentional and There are lessons to be learned from those further along the purposeful approach, one that builds on successes path and those that are just beginning. The small Canadian and embraces challenges. The world is now seeing province of New Brunswick has had inclusive education the impact of the global pandemic on schools, legislation since 1986, while Portugal enacted a legal communities, and economies. They have faced framework for inclusive education in 2018. Both are recognized tremendous loss and the effect on access to universal internationally as best practice examples of inclusive education. and inclusive education will be felt for years to come. It is up to each jurisdiction to define and implement inclusive education within their own context, building on the successes As the deadline for the UN’s 2030 sustainable in other places. As countries begin or continue to move development goals initiative fast approaches, forward, it is important to meet schools and communities where there is a sense of urgency to action and build they are, just as we would with our students. A country such as a sustainable and better future for all. 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