Private school's response to government policy: a case study of Catholic and Muhammadiyah participatory roles in education.

JOURNAL

PU

OF zyxwvutsrqponmlkjihgfedcbaZYXWVUTSRQPONMLKJIHGFEDCBA
AS I A N REVIEW
OF

ICAFFAIRS
D OLICY
***

Martial Law in Polomolok 1972 - 1986: A Study of

Private School's Response to Government Policy A

its Effects to Local Government and Policies

Case Study of Catholic and Muhammadiyah

MARLON B. lOPEZ, CECILIA B. TANGIAN

Participatory Roles in Education
DYAH MUTIARIN, MARKUS BUDIRAHARJO, ACHMAD NURMANDI, ZUlY

Conflict Between Societies and Companies in the

QODIR, RETNO MUlYANI AND RISANG BASKARA

Context of Ownership
AGUSTIYARA

Collaborative Entrepreneur and Collaborative
Manager: The New Leadership Roles in Forming

Assessing the Impact of House Rehabilitation

and Sustaining Local Government Collaboration

Program to Poverty Alleviation in Riau Islands

POBSOOK CHAMCHONG

Province
RIAU SUJARWANI, FAIZAl RIANTO, RAJA ABUMANSHUR MATRIDI, SHIERlY
VIANI PRATIWI

Knowledge Management and Leodership in
Malaysia
HALIMAH ABDUL MANAF

VOLUME 1 zyxwvutsrqponmlkjihgfedcbaZYXWVUTSRQPONMLKJIHGFEDCBA
NO.1
DECEMBER 2016

JOURNAL

OF

ASIAN

REVIEW

OF

PUBLIC AFFAIRSzyxwvutsrqponmlkjihgfedcbaZYXWVUTSRQPONMLKJIHGFEDCBA
AND POLICY zyxwvutsrqponmlkjihgfedcbaZYXWVUTSRQPONMLKJIHGFEDCBA
NO.1 VOLl

/ DECEMBER 2016

http://dx.doi.org/10.222.99/arpap/2016.004

Private School's R esponse to G overnm ent
Policy A C ase Study of C atholic and
M uham m adiyah Participatory R oles in
Education
DYAH MUTIARIN, MARKUS BUDIRAHARJO, ACHMAD NURMANDI,

ZULY

QODIR, RETNO MULYANI AND RISANG BASKARA

ABSTRACTzyxwvutsrqponmlkjihgfedcbaZYXWVUTSRQPONMLKJIHG
Received: 4 October
Accepted:

19 October

Published:

22 December

Corresponding

Indonesia n r eligion-ba sed pr iva te schools a r e gener a lly per ceived

2016
2016

either a s highly elitist, ta r geted for the well-off gr oup, with gr ea t

2016

DYAH MUTIARIN
Universitas

buildings, a nd ta ught by poor ly pr epa r ed tea cher s. The objective

Muhammadiyah

Yogyakarta,

school fa cilities a nd well-pr epa r ed tea cher s, or la r gely impover ished, intended to ser ve the ma r gina lized, housed in dila pida ted

author:

r ea lity, however , is much mor e nua nced tha n such a dichotomistic

Indonesia

view. This pa per r epor ts a study to investiga te the impa cts of

email: mutiarin@yahoo.com

officia lly ma nda ted r egula tions on two types of pr iva te schools, r un
ACHMAD

NURMANDI,

ZULY

QODIR and DYAH MUTIARIN
a researcher

in JK School of

Government

Universitas

Muhammadiyah
Indonesia.

Yogyakarta,

MARKUS

is

by Muha mma diya h

a nd Ca tholic gr oups in two pr ovinces of Indo-

nesia . Using mixed methods to ta p into both qua ntita tive

a nd

qua lita tive da ta , the study ga ther ed da ta fr om 92 schools in the
pr ovinces ofYogya ka r ta

a nd Centr a l1a va .

The da ta suggest tha t

BUDIRAHARJO, RETNO

the ma jor ity of these schools a r e stifled with unfr iendly policies

MULYANI and RISANG

issued by na tiona l a nd loca l a uthor ities, while still ma inta ining

BASKARA are Lecturers at
Department
Education,

of English
Sanata Dharma

their ca pa bilities

to

ser ve their students.

Keywor ds: capability,

religion-based

schools, regulatory

University, Yogyakarta,

changes, Indonesian schools, participatory roles, civil society

Indonesia.

organization zyxwvutsrqponmlkjihgfedcbaZYXWVUTSRQPONM

BACKGROUND

Civil society's contributions in the provision of educational servicesare a highly dynamic phenomenon across
the world. Extant literature in this field is rich with spiritual, social, religious, cultural, and economic consider-

Izyxwvutsrqpo
51

Vol. 1 No.1 December 2016

s that support

the emergence

• 993) showcase

of civil society's participations.

how small, Catholic

- of massive public schooling

'1g out humanistic

schools remain to playa

system in the US. It is found

- their positive contributions

b ig role in the

that private schools

since they strongly hold ideological

values, maintaining

&

Bryk, Holland,

a high expectation

ideals, such as

culture,

__ - personal regards. McEwan (2000) also raises the importance

and focus-

of private schools

a highly repressive regime. The schools were found to be effective even when
waszyxwvutsrqponmlkjihgfedcbaZYXWVUTSRQPONMLKJIHGFEDCBA
very dire and unconducive
for democracy in Chile.

itical atmosphere

an, Orazem, Paterno's (2001) study of the contributions

of private schools in

n shows that the presence of private schools in poor socio-economic
cararnount

importance.zyxwvutsrqponmlkjihgfedcbaZYXWVUTSRQPONMLK

milar phenomenon

- 5

societies

occurs in South East Asian countries

(Cummings,

2008) .

...,ore than 246 millions of citizens spread among its 17,000 islands, Indonesia
highly complex challenges
revision of compulsory

_,...."",1

education.

in the provision
Historically

services was in line with the social, cultural,

_II'Y'\.::olict<

the provision

and political

schools had significantly
independence

struggles.

in the formations

of patriotic

Up to this day, empirical

(Haryono,
that

groups to

evidence obtained

the inherited qualities among today's generation.

& Garg's (2007) study yields compelling
~orivate schooling

among

2008; Sirozi, 2004). It is generally admitted

contributed

:YlVate schools demonstrates

of edu-

dynamics

and religious groups decades prior to Indonesian independence

Subanar, 2003; Rosariyanto,

-"-I'>rtthe

of public services, including

speaking,

findings

about better long-term

experiences among their graduates. Those attending

qualiprivate

schools were more likely to get better job, have better salaries, and earn
ving. James, King, & Suryadi (1996) investigated
orivate schools in comparison
are much more efficient
significant

_=rv'O

than their counterparts.

contributions

player in the provision

orce its independence
e hegemonistic

repressions

(Cribb, 1993). Accordingly,

faced by

that private schools in Indonesia
of educational

despite apparent

are to

services to Indonesians.
into a state governed

evidence

of such significant

schools run by civil soc iety, systematic

ingrained

in the minds of the bureaucracy.

ooint, one of the most recent, state-funded
·.JIU

upon their long

over civil society in the face of socio-political

_•..•
tions of these private primary

.,.0

Drawing

in 1945, Indonesia itself has grown

ns have been strongly

management

to this country, and the huge complexity

ent, Bangay (2005) contends
a significant

the financial

to the public schools. It was found that private

joint review of educational

to the 20th century does not touch the contribution

dis-

First, a
enter-

of civil society at all,

PU8UC AFFAIRS
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let alone religion-based educational schools (Board of the National Standards of
Education, 2010). Second, the widely shared belief, even among scholars, refers to

& Joshi, 2013) of private schools in Indonesia. Pria dichotomic view (e.g. RosserzyxwvutsrqponmlkjihgfedcbaZYXWVUTSRQPONMLKJIHGFEDCBA
vate primary schools are generally seen either as highly elitist (with glaring facilities,
intended for the well-off families, located in highly strategic places in high-end
neighborhood)

or poorly managed (with insufficient facilities, low quality of ser-

vices, teachers with minimum teaching competences, housed in dilapidated buildings). Third, the lack of acknowledgment

has been apparent in verbal expressions

and attitude of some dignitaries of the Department of Culture and Education (Mujiran,zyxwvutsr
2014, in press). It was reported that Muhammad Nuh, the former Education Minis-

ter, assaulted private schools over additional school fees.
Educational servicesare a dynamically complex enterprise, requiring continuous
collaborations and improvements from many parties. On the one hand, an educational enterprise is volatile to ups and downs of social, economic, and cultural forces.
As noted by Jones & Hagul (2001), the demise of the New Order in 1998 had caused
up to 30% of Indonesian children to drop out of their elementary schools. Increasing
student enrollments during its three-decade reign was washed away by the sudden
political and economic turmoil. On the other hand, a big amount of money provided to improve the quality of education does not necessarily correlate with improved results. Suryadarma (2012) underscores the findings that despite the huge
amount of money spent by the government to improve public schools, significant
results are not attained. Such complexity sends a strong message that a high degree
of success in educational services is not reducible to financial components. There
has been an increasing awareness that school people in the field live a legacy of the
past (Deal & Peterson, 1999; DuFour & Eaker, 1998), which is vividly demonstrated
the private schools in this study.
This paper reports a study on two types of private primary schools, namely Catholic
and Islamic, in Central Java and Yogyakarta provinces. These schools were rooted in
pre-independent social and political movements, more as civil society's initiatives in
response to some pressing needs of young qeneration to nurture their patriotic spirits and contribute to their motherland. Historically speaking, while maintaining some
missions to educate the young, such religion-based movements were replete with a
high degree of self-agency (Haryono, 2009). Hardened by political, economic, social, and cultural struggles under the reigns of the Dutch East Indies Authority, the
Japanese troops, and later the independent Indonesian government, forefathers of
such religion-based schools left some legacy of hard-working

spirits, serving atti-

tude, and resilience. This report is set to showcase the legacy of capabilities inherited

5 3 zyxwvutsrqp

Vol I No I Detember 2016

school people in these two types of schools.zyxwvutsrqponmlkjihgfedcbaZYXWVUTS

by current

RESEARCH PROBLEMS
Drawing

on Amartya

set to identify

Sen's (1990) works on capability

how unique capabilities

of religion-based

to respond to both highly mandated
To get a better understanding

this research is

private schools are explored

laws and poor law enforcements

in indonesia.

of the issue, research questions are proposed.

The first

wha t a r e the r ole of r eligion-ba sed school for its community? What
is zyxwvutsrqponmlkjihgfedcbaZYXWVUTSRQPONMLKJIHGFEDCBA

question

issues are the religion-based
is

approach,

schools encountering

in their work? The third question

to wha t extent do unique ca pa bilities held by pr iva te schools a llow them to dea l

with such dir e cha llenges?
LITERATURE REVIEW
In this study, we raise an issue of contributions
of educational

services to the public.

ferred collectively
provision

political,

and economic

survices provided

and White,

such contributions

private participation
vate education
but on higher

mutual

in education.

during

sectors since the colonial

era (Robinson

in education

benefits, and information

education.

is known

as center-periphery

Much of the emphasis

sharing.

approach

it was believed that private

and could allow for more government

participation

funding

Other ex-

to analyzing

on fee charging

the 1980s and 1990s was in fact not on primary

and pri-

education

was crucial for

to target basic education

& Carrol, 2004).

Private schools in Indonesia

have provided

educational

and those living in more remote areas, and are sometimes
(Christiano

and Cumming,

the study of schooling

internal to it (Postiglione,

alternatives

as part of an historical

promises

of national

for the poor

the only options for these

2006). There is a methodological

imperative

2007). However, the grossly abused privatization

progress. This is actually

to

process whose dynamics are

does not necessarily entail a move beyond the center-periphery
with

are highly

(Coston, 1998), where the state allows private sectors

perts in the area assign the phenomenon

approach

role in the

angles, such as theoretical,

of some room for civil society to participate

to engage in resource sharing,

students

an increasing

re-

Africa regions had enjoyed some health and

by non-state

as a form of complementarity

(Samoff

different

commonly

1997).

The provision

innovation

from

considerations,

beneficial. A case in point, sub-Saharan
education

of this nature,

as a civil society, have also been playing

of social services. Considered

ideological,

of private schools in the provision

Organizations

platforms

part of an international

discourse
associated
process

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that pulls East Asian education back into a position that keeps center-periphery
platforms relevant. In short, private education has the potential to be part of ar
exploitative relationship in which core nations are collaborators. Even while the discourse in Asia calls for rejection of selected Western value positions, it has beer
slower at developing newer analytical categories for schooling-state development
expenence.
Lockheed and Jimenez (1994) explain three reasons why private participation ir
basic education plays an important role. First, private education must fill the inevitable gaps offered by public education provision. Private organizations' participations in this area are motivated by two factors, a differentiated demand arising frorr
a deep-seated religious or linguistic diversity and an offer on the part of an entrepreneur or organization,

often religious, to start the schools on a non-profit

basis

However, this situation is dynamic, given the fact that countries develop and differentiated demand becomes a bigger motivator of private education. Second, private
education systems have been found to foster greater efficiency. These characteristics
include a greater flexibility in the way they operate and in the way they are fundea
a direct accountability to those who use their services and a greater tendency for
those in charge of individual schools to make critical educational decisions (Coleman
Hoffer and Kilgom, 1982). It is often argued that these characteristics enable private
schools to provide education more effectively, in other words, to provide the type
and quality of education students and their parents' demand. Finally, Lockheed ana
Jimenez (1994) contend that private schools can serve as a laboratory for alternative
models of school-level management, which, if effective, and accordingly it could be
adopted by public schools. Theoretically speaking, private schools are free of the
bureaucratic constraints that encumber public schools, and are able to control map,
more decisions at the school level (Lockheed and Jimenez, 1994).
Other studies have been done to investigate the extent of private participation ir
educational service provisions. Privately-owned educational institutions are believec
to provide educational services that meet parents' needs which are unavailable ."

et a l. (2011) find that r public schools, such as students with particular needs. Park,zyxwvutsrqponmlkjihgfedcbaZYXW
addition to formal schooling in public schools, the Korean children are also supported with private tutors (hakwon) in order to allow them excell and enroll in high)
prestigious universities. Private schools are considered to have an ample room tc

manage their own resources, and therefore are more flexible in decision making.zyxwvuts

CONTRIBUTIONS

OF MUHAMMADIYAH

AND CATHOLIC GROUPS

Muhammadiyah is one of the two most influential Muslim organizations in In-

Vol. I No.1 December 2016

Izyxwvutsrqpo
55

donesia. It was established 33 years before Indonesia gained its independence. Since
-ts inception in 1912, it has engaged intself in education, health, and humanitarian
and social welfare issuesin Indonesia. Today, Muhammadiyah offers a wide range of
services.In terms of education, it has 14,000 schools, ranging from kindergarten to
igh schools; and 197 universities with a great variety of disciplines, such as technical engineering, medicine, economics, law, philosophy, education, and politics. In
terms of health services,it has 500 large and small hospitals and clinics. Other social
and religious services include 350 orphanages

and thousands

of mosques

Muhammadiyah,2012).
The establishment of Muhammadiyah schools was set to provide educational
opportunities to indigenous people. In contrast to its major counterpart, Nahdlatul
Jlama, Muhammadiyah attempted to purify the renewal of religious beliefs from a
-nodernist perspective. It set to address the existing socio-culturally traditional systerns and infuse religious reforms so as to allow the religion to work in harmony
.vith the modern rational thought back to the Koran and Islamic beliefs are. The
religious lessons were added with more secular lessons, allowing the students to
accessscience and skills relevant to the challenges of life and work (Ariyanti, 2011).

have
K.H.Ahmad Dahlan (1868-1923), the Muhammadiyah founder, was known tozyxwvutsrqponmlkjihg

combined both boarding school system with a Western schooling system. The lessons learned from boarding school education were Islamic religious subjects, while
tnose taken from the western education system were generally subject and class
system (Ariyanti, 2011).
As a civil society organizations, Muhammadiyah and Catholic foundations have
a long tradition and history in the management of schools before Indonesia's indeoendence in 1945. In the 18th and 19th century, a vast network of Qur'anic schools
spread across the archipelago (Hefner, 2000). The leaders of these schools were
suspicious of Europeans and their native allies, and they located their institutions at
a safe distance from state capitals (Hefner, 2000). From the point of view of Catholicism, one of the most influential figures that established the underlying principles of
Catholic education in Java was Rev. van Lith, SJ(1863-1926). He arrived in Indonesia
J')

1896 and established st. Francis Xavier College in Muntilan, Central Java. The

school was intended to prepare young poeple to teach the indigeneous children. In
fact, some Catholic schools were actually built long before his arrival in Java. Ursuline
Sisterswas established in Indonesia first in 1858. However, the presence of Rev. van
lith. SJ, brought lasting significance and contribution

'Tlaintained a social-anthropological

at larger spheres. First, he

approach in orderto transform Javanese cul-

ture. His presence in Java was not solely targeted for conversion into Catholicism per

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ANDPOUCY

se. His concerns were more on how to help the Javanese people aware of their own
values and improve their conducts and behaviors upon the awareness of their own
culture. Second, his commitments to creating a group of young people to be highly
aware of the existing Javaneseculture led him to establish a teachers training school,
called St. Francis Xavier College (now van Lith Senior High School) in Muntilan.
Central Java (Subanar, 2003; Rosariyanto, 2009). What was carried by Rev.van Lith
in teacher education was an effort to assistthe transformation of the socio-culturalanthropological

nature of the Javanese community. He identified some negative

things among Javanese people, such as maintaining contract-based marriage, and
being apologetic and opportunistic.

He set out to address such issues through his

interactions with his students, students' parents, and people in general (Rosariyanto,
2009).
Basedon the Census2011, the number of Catholic people in Indonesia is 3.5 per
cent, and the Muslims are 87.2 per cent. It is worth noting that despite being
observed by the majority, Islam is not used as the Indonesian formal ideology, allowing non-Muslim

groups to thrive. The service that was given by Chatolic group

concluded Hospitals, Schools and several Universities. The Chatolic Schools which
were most popular were mostly managed by religious congregations, that had elite
school in major cities, but diocesan-based schools were generally located in bo
cities and rural areas.
Ironically, despite significant contributions of educational services provided ~
the civil society, governments in the EastAsian and Southeast Asian countries, share
some commonalities in terms of unjust policies enacted towards private schools
The existence of private, religion-based schools is seen to have played a unique role
in the preparation of young generation. Such a unique contribution

represents a

demand side theory. In his sociological studies on the schools in these areas
Cummings (2008) finds some shared commonalities: the governments are more
likely to provide vast rooms for privately-run activities or services as far as they are

not disruptive to national stability. On the one hand, this attitude servessome zyxwvutsrqpo
rooror freedom for non-state groups to actively contribute in the provision of services
On the other hand, this loose attitude on the part of the governments also gives
some legitimacy for the ruling governments to provide minimum support for the