ARE WE DOWNGRADING THE ROLE OF TEACHERS? AN EVALUATION OF TEACHER WORK PERFORMANCE INDICATORS IN INDONESIA
ARE WE DOWNGRADING THE ROLE OF TEACHERS? AN EVALUATION
OF TEACHER WORK PERFORMANCE INDICATORS IN INDONESIA
Punang Amaripuja1
1
Lecturer, Department of Management, Faculty of Economics and Business
1
Universitas Muhammadiyah Yogyakarta
(p_amaripuja@yahoo.com)
ABSTRACT
This paper evaluates the indicators used in the appraisal of teachers work performance in Indonesia in the light of work
performance. The evaluation will be used to investigate whether the required role of teachers is still relevant with the
current demands of education in the 21st century. Work performance is first described in its traditional view as
behaviors or actions that are relevant to the goals of the organization, and its evolution into a four dimensional concept
is then exposited. The role of teachers in the Indonesian education system is presented together with work performance
indicators used in the teachers appraisal system. It is concluded that the teacher competency appraisal system used in
Indonesia mostly addresses task performance and contextual performance, while adaptive performance is only related
to two competency components. In effect, this will mainly enforce the traditional role of teachers, while downplaying
the role of teachers as innovators and active stakeholders. The use of an integrated job context model will require
further improvement in the teacher work performance appraisal system in Indonesia, as well as other related systems
such as welfare and career planning. Such an endeavor will hopefully pave the way for the emergence of teachers that
are better prepared to equip students with 21 st century skills, and more aligned with their actual role as a vital
component of the school system, and on a larger scale, the education system.
1. The Traditional View of Work Performance
Without a clear understanding of work
performance itself, discussions on the matter would
seem like aiming at a moving target. Griffin et.al.
(2007) observed that the meaning of work performance
in the field of organizational behavior has changed
over the last 40 years, which shifted from a focus on
jobs and their fixed tasks to a broader understanding of
work roles in dynamic organizational contexts. Work
performance was traditionally defined as “behaviors or
actions that are relevant to the goals of the
organization” (Campbell, 1990, in Koopmans et.al,
2011). Thus, work performance is defined in terms of
behaviors or actions of employees, rather than the
results of these actions, and is generally evaluated in
terms of the proficiency with which an individual
carried out the tasks that were specified in his or her
job description. A “well-specified job” was thus one in
which all of the behaviors that contributed to
organizational goal attainment were captured in an
individual’s job description (Murphy & Jackson, 1999,
in Griffin et.al., 2007).
2. Work Performance as a Multidimensional
Concept
Campbell (1990, in Koopmans et.al, 2011)
expands the traditional view of work performance by
describing three notions accompanying its definition:
(1) work performance should be defined in terms of
behavior rather than results, (2) work performance
includes only those behaviors that are relevant to the
organization’s goals, and (3) work performance is
multidimensional. As it is can be difficult to distinguish
between behavior and results, results has been included
in some definitions of work performance. However,
Koopmans et.al. (2011) noted that work performance is
an abstract, latent construct that cannot be pointed to or
measured directly, but is made up of multiple
components or dimensions. These dimensions may
generalize across jobs, while they are in turn, are made
up of indicators that can be measured directly and can
differ between jobs. To conceptualize and
operationalize
individual
work
performance,
researchers should explicate the construct domain of
work performance and identify its dimensions and
indicators.
The 2017 International Conference on Management Sciences ( ICoMS 2017) March 22, UMY, Indonesia
168
The latest advancements in the concept of
work performance was chronicled by Koopmans et.al.
(2013) which was divided into 4 dimensions. The first
dimension, task performance, refers to the proficiency
with which an employee performs central job tasks
(Campbell, 1990, in Koopmans et.al., 2013). The
second dimension, contextual performance, refers to
employee behaviors that support the organizational,
social, and psychological environment in which the
central job tasks are performed (Borman and
Motowidlo, 1993, in Koopmans et.al., 2013). The third
dimension, adaptive performance, refers to an
employee’s proficiency in adapting to changes in work
roles or environment (Griffin et.al., 2007). The fourth
dimension, counterproductive work behavior, refers to
behavior that is harmful to the well-being of the
organization (Rotundo and Sackett, 2002, in Koopmans
et.al., 2013).
From
a
multi-disciplinary,
systematic
literature review of the research found in PubMed,
Embase.com, PsycINFO, and ABI Inform, Koopmans
et.al (2011) developed a heuristic framework of
individual work performance (Figure 1) which
consisted of four broad and generic dimensions.
Figure 1. Heuristic framework of individual work performance (Koopmans et.al., 2011).
The highest level of the framework shows the
latent, general factor of individual work performance.
The existence of this general factor accounts for
substantial variation in job performance ratings. The
second level situates the four dimensions of individual
work performance, while the the third level locates the
individual measures corresponding to each dimension.
The importance of these dimensions, and the exact
indicators associated with each dimension, may differ
depending on the context involved. Task performance
(first dimension) refers to the proficiency with which
central job tasks are performed; contextual
performance (second dimension) refers to behaviors
that support the organizational, social, and
psychological environment in which the technical core
must function; and adaptive performance (third
dimension) includes new advances such as creative
performance which are not included in the previous
dimensions.
The 2017 International Conference on Management Sciences ( ICoMS 2017) March 22, UMY, Indonesia
169
Figure 2. Integrated Job Context Model (Folami and Jacobs, 2005)
Folami and Jacobs (2005) took a different
approach by combining findings on task design from
the organizational behavior literature with research
findings on organizational context from organizational
theory
to
develop
an
integrated
task
characteristics/organizational context model.
As shown in Figure 2, factors other than task
characteristics that may impact performance include
individual, economic, and organizational context
variables. Individual factors that may affect
performance include ambition, education, ability,
professional experience, and occupational level.
Employee growth need strength (GNS) has been used
to proxy for ambition and individual differences
between employees, which is supported by previous
research which support GNS as mediating the
relationship between job characteristics and affective
outcomes (Hackman & Lawler, 1971; Hackman &
Oldham, 1976; Hackman, Oldham, and Pearce, 1976,
in Folami and Jacobs, 2005). Individual differences are
used in the task characteristic model to capture how
employee motivation can be enhanced through the
design of jobs. As described by theory, workers who
desire higher order need satisfactions are more likely to
obtain satisfaction when they work on jobs that are
meaningful and that provide feedback on the adequacy
of their personal work activities (Hackman & Lawler,
1971, in Folami and Jacobs, 2005). Meanwhile, GNS is
used to proxy and control for ambition and individual
differences between employees.
3. The Role of Teachers
UNESCO Santiago (2005) acknowledges that
teaching is a highly complex endeavour, and the
situations in which teachers make daily decisions are
extremely variable. In this perspective, the teaching
process requires a deep understanding of the working
context, suitable mastery of teaching content (Shulman,
in UNESCO Santiago, 2005), as well as a wide range
of teaching strategies. This would also include the
ability to interact and communicate and develop
knowledge and practical elements in an environment of
freedom, trust, attention, reasoned decision, empathy
and authority, and thus involves the ability to reason
and judge what is or is not appropriate in practice
(Ávalos, 2009, in UNESCO Santiago, 2005). In
Indonesia, the Law No.14/2005 on Teachers and
Lecturers
stipulates
that
"teachers are professional educators with the primary
task of educating, teaching, guiding, directing, training,
assessing, and evaluating students in formal early
childhood education, basic education, and secondary
education".
4. Teachers Work Performance Indicators in
Indonesia
The Guidebook for the Implementation of
Teachers Performance Appraisal (P3 Educators, 2012)
states that teacher performance assessment is not meant
The 2017 International Conference on Management Sciences ( ICoMS 2017) March 22, UMY, Indonesia
170
to make it difficult for teachers, but rather the
performance assessment should be conducted to create
a professional teacher, because the dignity of a
profession is determined by the quality of the
professional service. The assessment of teacher
performance is also meant to show accurately the
activities of teachers in the classroom, and help them to
improve their knowledge and skills. It is thus expected
to contribute directly in improving the quality of
learning, as well as assist the career development of
teachers as professionals.
According to the Minister for the
Empowerment of State Officials and Bureaucratic
Reform Regulation No. 16 / 2009, the assessment of
teacher performance is an evaluation that is carried out
on each item of the main task of the teacher for the
purpose of career development, rank, and occupation.
Performance assessment related to the implementation
of the teaching and learning process for subject
teachers and classroom teachers include planning and
implementing of learning, evaluating and assessing,
analyzing the results of the assessment, and
implementing a follow-up on assessment results in
applying the four (4) domain competencies required of
teachers in accordance to the Minister of National
Education Regulation Number 16 / 2007 on Academic
Qualifications Standards and Competencies of
Teachers.
The implementation of teaching and learning
requires teachers to master the 24 (twenty four)
competencies that are grouped into pedagogical,
personality, social, and professional dimensions, which
are further are summarized into 14 (fourteen)
competence as published by the National Education
Standards Agency (BSNP). The details of these
competencies are outlined in the table below.
Table 1. Classroom / Subject Teachers
Competencies
No.
Competency Dimensions
No. of Competencies
No. of Indicators
1
Pedagogical
7
45
2
Personality
3
18
3
Social
2
6
4
Professional
2
9
14
78
The following shows the teacher competencies
appraised in each competency dimension:
Pedagogical Competence
1. Understands the characteristics of students
2. Masters learning theories and principles of educative
learning
3. Development of the curriculum
4. Educational learning activities
5. Understand and develop student’s potential
6. Communication with learners
7. Assessment and evaluation
Personality Competence
1. Acting in accordance with religious norms, legal,
social, and national culture of Indonesia
2. Demonstrate a mature personality and act as a role
model
3. Good work ethics, high responsibility, a sense of
pride in being a teacher
Social Competence
1. Be inclusive, acting objectively, and non
discriminatory
2. Communication with fellow teachers, educators,
parents of students, and the community
Professional Competence
1. Mastery of the material, structure of scientific
concepts, and mindsets that support the
subjects of teaching
2. Develop professionally through reflective actions
5. Contemporary Views on Teachers
Performance Appraisal Systems
Work
Duyar et.al. (2014) examined the antecedents
and outcomes of teachers’ task and extra-role
performance (ERP) under two different autonomy
regimes in regular public schools and charter schools
(schools that receives government funding but operates
independently of the established public school system
in which it is located), with a special emphasis given to
the ERP of teachers. The study revealed that the
predictors and outcomes of teachers’ task and ERP
have differing dynamics in these two distinct types of
The 2017 International Conference on Management Sciences ( ICoMS 2017) March 22, UMY, Indonesia
171
public schools. The levels of autonomy between
regular public and charter schools appeared to be the
strongest differentiating factor across two groups of
schooling, with both task and extra role types of
teacher performance in charter schools outweighed
their counterparts in public schools. Those in favor of
charter schools predicted that autonomy in structuring
and managing, innovative actions through the use of
aforementioned unconventional policies and practices,
and being accountable for results would lead to
improved student achievement.
Studies in other sectors have also documented
that ERP contribute to employee task performance and
overall organizational performance (e.g. Koys, 2001;
Podsakoff et al., 2009; Vey and Campbell, 2004, in
Duyar et.al., 2014). Duyar et.al. (2014) observes that
while they are expected to perform beyond
expectations, teachers are overwhelmed with already
burgeoning tasks and poor climates in schools.
A more holistic approach to assess teachers’
performance was proposed by Murphy (2013), which
stated that the three most common ways to evaluate
teacher effectiveness are gains in test scores, classroom
observations and pupil surveys. Murphy (2013) further
states that gains in pupil test scores are the best
available metric to measure teacher performance. The
main advantage of this measure is its objectivity; and
despite its shortcomings, it is by far the most reliable of
the three measures in predicting a teacher’s future
performance. On the contrary, test and exam results
cannot reliably be used to differentiate teachers who
are just above and below average, but they can
effectively be used to identify
consistently perform well or badly.
teachers
who
In addition, Murphy (2013) also proposes that
while appraisal and evaluation should focus on
classroom activities, teachers’ contributions to extracurricular activities, including sports, trips and clubs,
should also be recognised. This observation is also in
line with UNESCO’s findings in Latin America
(UNESCO Santiago, 2005) which shows that teacher’s
professional performance does not end in the
classroom, because teachers have clear responsibilities
to the school where they work, to the parents of their
students, to the community they serve; and to the
professional associations to which they belong.
6. Evaluation of Teachers Work Performance
Indicators in Indonesia
This section will first map out each of the
components of each of the competency dimensions in
relationship to the heuristic framework of individual
work performance developed by Koopmans et.al.
(2011) and the integrated job context model proposed
by Folami and Jacobs (2005). Any discrepancies will
be further investigated, and referenced back to the role
of teachers in Indonesian context.
The section will provide a review of whether
the teachers work performance indicators used in
Indonesia are in-line with the modern context of work
performance, and the demands laid out for schools of
the 21st century.
Tabel 2. Comparison between the teachers competency components used in Indonesia with the Heuristic IWP
Framework ( Koopmans et.al., 2011).
Competencies
Heuristic IWP Framework
(Koopmans, 2011)
A
Pedagogical Competence
1
Understands the characteristics of students
Task Performance
2
Masters learning theories and principles of
educative learning
Task Performance
3
Development of the curriculum
Task Performance
4
Educational learning activities
Contextual Performance
5
Understand and develop student’s potential
6
Communication with learners
7
Assessment and evaluation
B
Personality Competence
Adaptive Performance
Contextual Performance
Task Performance
The 2017 International Conference on Management Sciences ( ICoMS 2017) March 22, UMY, Indonesia
172
1
Acting in accordance with religious norms,
legal, social, and national culture of Indonesia
Contextual Performance
2
Demonstrate a mature personality and act as a
role model
Contextual Performance
3
Good work ethics, high responsibility, a sense
of pride in being a teacher
Contextual Performance
C
Social Competence
1
Be inclusive, acting objectively, and non
discriminatory
2
Communication with fellow teachers,
educators, parents of students, and the
community
Adaptive Performance
Contextual Performance
D
Professional Competence
1
Mastery of the material, structure of scientific
concepts, and mindsets that support the
subjects of teaching
Task Performance
Develop professionally through reflective
actions
Task Performance
2
Based on Table 2, the teacher competency
appraisal system used in Indonesia mostly addresses
task performance and contextual performance in
Koopmans (2011) framework, while adaptive
performance is only related to two competency
components. The use of the counterproductive work
behavior dimensions seems not to be suitable for the
formal appraisal, but can nonetheless be assessed
through other means such as observations of day-today behavior, peer evaluations, and supervisor
assessments. The lack of adaptive performance
components is very unfortunate, since these are
primary requirements needed to help students acquire
21st Century Skills.
7. Conclusion
In general, the examined teacher work
performance indicators in Indonesia mainly enforce the
traditional role of teachers, and more emphasis on the
role of teachers as innovators and active stakeholders
of the school system is needed. The use of the
integrated job context model will require further
improvement in the teacher work performance
appraisal system in Indonesia, as well as other related
systems such as welfare and career planning. The
improvements will obviously be a complex and lengthy
process, but will benefit the education system in the
long run, since it emphasizes on results rather than a
snapshot of behavior, and will integrate performance
with internal and external factors. Such an endeavor
will hopefully pave the way for the emergence of
teachers that are better prepared to equip students with
21st century skills, and more aligned with their actual
role as a vital component of the school system, and on
a larger scale, the education system.
References
Duyar, I., Ras, N., and Pearson, C.L., 2014, Analysis of
Teachers’ Task and Extra-Role Performance
Under Different Autonomy Regimes,
International Journal of Productivity and
Performance Management Vol. 64 No. 4,
2015 pp. 499-522, Emerald Group
Publishing Limited.
Folami, L.B., Jacobs, F., 2005, The Joint Effect Of Task
Characteristics And Organizational Context
On Job Performance: A Test Using SEM,
Journal of Business & Economics Research
Volume 3, Number 7.
Griffin, M.A., Neal, A., Parker, S.K., 2007, A New
Model of Work Role Performance: Positive
Behavior in Uncertain and Interdependent
Contexts. Academy of Management Journal.
2007; 50: 327-347.
The 2017 International Conference on Management Sciences ( ICoMS 2017) March 22, UMY, Indonesia
173
Koopmans, L., Bernaards, C.M., Hildebrandt, V.H.,
Schaufeli, W.B., de Vet, H.C.W., Van der
Beek, A.J., 2011, Conceptual Frameworks
of Individual Work Performance: A
Systematic Review, Journal of Occupational
and Environmental Medicine Volume 53,
Number 8.
Koopmans, L, Bernaards, C.M., Hildebrandt, de Vet,
H.C.W., van der Beek, A.J., 2013,
Measuring Individual Work Performance Identifying and Selecting Indicators, in
WORK: A Journal of Prevention,
Assessment & Rehabilitation. 2013; 45(3).
Law
No.14/2005 (Indonesia)
Lecturers
on
Teachers
and
Minister for the Empowerment of State Officials and
Bureaucratic Reform Regulation No. 16 /
2009
Minister of National Education Regulation Number 16
of 2007 on Standards of Academic
Qualifications and Competencies of
Teachers.
Murphy, R., 2013, Testing Teachers: What Works Best
for Teacher Evaluation and Appraisal, The
Sutton Trust.
P3 Pendidik, 2012, Pedoman Pelaksanaan Penilaian
Kinerja Guru, Kementerian Pendidikan Dan
Kebudayaan, Jakarta.
UNESCO
Santiago, 2005, Critical Issues for
Formulating New Teacher Policies in Latin
America and The Caribbean: The Current
Debate, UNESCO, Paris.
The 2017 International Conference on Management Sciences ( ICoMS 2017) March 22, UMY, Indonesia
174
OF TEACHER WORK PERFORMANCE INDICATORS IN INDONESIA
Punang Amaripuja1
1
Lecturer, Department of Management, Faculty of Economics and Business
1
Universitas Muhammadiyah Yogyakarta
(p_amaripuja@yahoo.com)
ABSTRACT
This paper evaluates the indicators used in the appraisal of teachers work performance in Indonesia in the light of work
performance. The evaluation will be used to investigate whether the required role of teachers is still relevant with the
current demands of education in the 21st century. Work performance is first described in its traditional view as
behaviors or actions that are relevant to the goals of the organization, and its evolution into a four dimensional concept
is then exposited. The role of teachers in the Indonesian education system is presented together with work performance
indicators used in the teachers appraisal system. It is concluded that the teacher competency appraisal system used in
Indonesia mostly addresses task performance and contextual performance, while adaptive performance is only related
to two competency components. In effect, this will mainly enforce the traditional role of teachers, while downplaying
the role of teachers as innovators and active stakeholders. The use of an integrated job context model will require
further improvement in the teacher work performance appraisal system in Indonesia, as well as other related systems
such as welfare and career planning. Such an endeavor will hopefully pave the way for the emergence of teachers that
are better prepared to equip students with 21 st century skills, and more aligned with their actual role as a vital
component of the school system, and on a larger scale, the education system.
1. The Traditional View of Work Performance
Without a clear understanding of work
performance itself, discussions on the matter would
seem like aiming at a moving target. Griffin et.al.
(2007) observed that the meaning of work performance
in the field of organizational behavior has changed
over the last 40 years, which shifted from a focus on
jobs and their fixed tasks to a broader understanding of
work roles in dynamic organizational contexts. Work
performance was traditionally defined as “behaviors or
actions that are relevant to the goals of the
organization” (Campbell, 1990, in Koopmans et.al,
2011). Thus, work performance is defined in terms of
behaviors or actions of employees, rather than the
results of these actions, and is generally evaluated in
terms of the proficiency with which an individual
carried out the tasks that were specified in his or her
job description. A “well-specified job” was thus one in
which all of the behaviors that contributed to
organizational goal attainment were captured in an
individual’s job description (Murphy & Jackson, 1999,
in Griffin et.al., 2007).
2. Work Performance as a Multidimensional
Concept
Campbell (1990, in Koopmans et.al, 2011)
expands the traditional view of work performance by
describing three notions accompanying its definition:
(1) work performance should be defined in terms of
behavior rather than results, (2) work performance
includes only those behaviors that are relevant to the
organization’s goals, and (3) work performance is
multidimensional. As it is can be difficult to distinguish
between behavior and results, results has been included
in some definitions of work performance. However,
Koopmans et.al. (2011) noted that work performance is
an abstract, latent construct that cannot be pointed to or
measured directly, but is made up of multiple
components or dimensions. These dimensions may
generalize across jobs, while they are in turn, are made
up of indicators that can be measured directly and can
differ between jobs. To conceptualize and
operationalize
individual
work
performance,
researchers should explicate the construct domain of
work performance and identify its dimensions and
indicators.
The 2017 International Conference on Management Sciences ( ICoMS 2017) March 22, UMY, Indonesia
168
The latest advancements in the concept of
work performance was chronicled by Koopmans et.al.
(2013) which was divided into 4 dimensions. The first
dimension, task performance, refers to the proficiency
with which an employee performs central job tasks
(Campbell, 1990, in Koopmans et.al., 2013). The
second dimension, contextual performance, refers to
employee behaviors that support the organizational,
social, and psychological environment in which the
central job tasks are performed (Borman and
Motowidlo, 1993, in Koopmans et.al., 2013). The third
dimension, adaptive performance, refers to an
employee’s proficiency in adapting to changes in work
roles or environment (Griffin et.al., 2007). The fourth
dimension, counterproductive work behavior, refers to
behavior that is harmful to the well-being of the
organization (Rotundo and Sackett, 2002, in Koopmans
et.al., 2013).
From
a
multi-disciplinary,
systematic
literature review of the research found in PubMed,
Embase.com, PsycINFO, and ABI Inform, Koopmans
et.al (2011) developed a heuristic framework of
individual work performance (Figure 1) which
consisted of four broad and generic dimensions.
Figure 1. Heuristic framework of individual work performance (Koopmans et.al., 2011).
The highest level of the framework shows the
latent, general factor of individual work performance.
The existence of this general factor accounts for
substantial variation in job performance ratings. The
second level situates the four dimensions of individual
work performance, while the the third level locates the
individual measures corresponding to each dimension.
The importance of these dimensions, and the exact
indicators associated with each dimension, may differ
depending on the context involved. Task performance
(first dimension) refers to the proficiency with which
central job tasks are performed; contextual
performance (second dimension) refers to behaviors
that support the organizational, social, and
psychological environment in which the technical core
must function; and adaptive performance (third
dimension) includes new advances such as creative
performance which are not included in the previous
dimensions.
The 2017 International Conference on Management Sciences ( ICoMS 2017) March 22, UMY, Indonesia
169
Figure 2. Integrated Job Context Model (Folami and Jacobs, 2005)
Folami and Jacobs (2005) took a different
approach by combining findings on task design from
the organizational behavior literature with research
findings on organizational context from organizational
theory
to
develop
an
integrated
task
characteristics/organizational context model.
As shown in Figure 2, factors other than task
characteristics that may impact performance include
individual, economic, and organizational context
variables. Individual factors that may affect
performance include ambition, education, ability,
professional experience, and occupational level.
Employee growth need strength (GNS) has been used
to proxy for ambition and individual differences
between employees, which is supported by previous
research which support GNS as mediating the
relationship between job characteristics and affective
outcomes (Hackman & Lawler, 1971; Hackman &
Oldham, 1976; Hackman, Oldham, and Pearce, 1976,
in Folami and Jacobs, 2005). Individual differences are
used in the task characteristic model to capture how
employee motivation can be enhanced through the
design of jobs. As described by theory, workers who
desire higher order need satisfactions are more likely to
obtain satisfaction when they work on jobs that are
meaningful and that provide feedback on the adequacy
of their personal work activities (Hackman & Lawler,
1971, in Folami and Jacobs, 2005). Meanwhile, GNS is
used to proxy and control for ambition and individual
differences between employees.
3. The Role of Teachers
UNESCO Santiago (2005) acknowledges that
teaching is a highly complex endeavour, and the
situations in which teachers make daily decisions are
extremely variable. In this perspective, the teaching
process requires a deep understanding of the working
context, suitable mastery of teaching content (Shulman,
in UNESCO Santiago, 2005), as well as a wide range
of teaching strategies. This would also include the
ability to interact and communicate and develop
knowledge and practical elements in an environment of
freedom, trust, attention, reasoned decision, empathy
and authority, and thus involves the ability to reason
and judge what is or is not appropriate in practice
(Ávalos, 2009, in UNESCO Santiago, 2005). In
Indonesia, the Law No.14/2005 on Teachers and
Lecturers
stipulates
that
"teachers are professional educators with the primary
task of educating, teaching, guiding, directing, training,
assessing, and evaluating students in formal early
childhood education, basic education, and secondary
education".
4. Teachers Work Performance Indicators in
Indonesia
The Guidebook for the Implementation of
Teachers Performance Appraisal (P3 Educators, 2012)
states that teacher performance assessment is not meant
The 2017 International Conference on Management Sciences ( ICoMS 2017) March 22, UMY, Indonesia
170
to make it difficult for teachers, but rather the
performance assessment should be conducted to create
a professional teacher, because the dignity of a
profession is determined by the quality of the
professional service. The assessment of teacher
performance is also meant to show accurately the
activities of teachers in the classroom, and help them to
improve their knowledge and skills. It is thus expected
to contribute directly in improving the quality of
learning, as well as assist the career development of
teachers as professionals.
According to the Minister for the
Empowerment of State Officials and Bureaucratic
Reform Regulation No. 16 / 2009, the assessment of
teacher performance is an evaluation that is carried out
on each item of the main task of the teacher for the
purpose of career development, rank, and occupation.
Performance assessment related to the implementation
of the teaching and learning process for subject
teachers and classroom teachers include planning and
implementing of learning, evaluating and assessing,
analyzing the results of the assessment, and
implementing a follow-up on assessment results in
applying the four (4) domain competencies required of
teachers in accordance to the Minister of National
Education Regulation Number 16 / 2007 on Academic
Qualifications Standards and Competencies of
Teachers.
The implementation of teaching and learning
requires teachers to master the 24 (twenty four)
competencies that are grouped into pedagogical,
personality, social, and professional dimensions, which
are further are summarized into 14 (fourteen)
competence as published by the National Education
Standards Agency (BSNP). The details of these
competencies are outlined in the table below.
Table 1. Classroom / Subject Teachers
Competencies
No.
Competency Dimensions
No. of Competencies
No. of Indicators
1
Pedagogical
7
45
2
Personality
3
18
3
Social
2
6
4
Professional
2
9
14
78
The following shows the teacher competencies
appraised in each competency dimension:
Pedagogical Competence
1. Understands the characteristics of students
2. Masters learning theories and principles of educative
learning
3. Development of the curriculum
4. Educational learning activities
5. Understand and develop student’s potential
6. Communication with learners
7. Assessment and evaluation
Personality Competence
1. Acting in accordance with religious norms, legal,
social, and national culture of Indonesia
2. Demonstrate a mature personality and act as a role
model
3. Good work ethics, high responsibility, a sense of
pride in being a teacher
Social Competence
1. Be inclusive, acting objectively, and non
discriminatory
2. Communication with fellow teachers, educators,
parents of students, and the community
Professional Competence
1. Mastery of the material, structure of scientific
concepts, and mindsets that support the
subjects of teaching
2. Develop professionally through reflective actions
5. Contemporary Views on Teachers
Performance Appraisal Systems
Work
Duyar et.al. (2014) examined the antecedents
and outcomes of teachers’ task and extra-role
performance (ERP) under two different autonomy
regimes in regular public schools and charter schools
(schools that receives government funding but operates
independently of the established public school system
in which it is located), with a special emphasis given to
the ERP of teachers. The study revealed that the
predictors and outcomes of teachers’ task and ERP
have differing dynamics in these two distinct types of
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public schools. The levels of autonomy between
regular public and charter schools appeared to be the
strongest differentiating factor across two groups of
schooling, with both task and extra role types of
teacher performance in charter schools outweighed
their counterparts in public schools. Those in favor of
charter schools predicted that autonomy in structuring
and managing, innovative actions through the use of
aforementioned unconventional policies and practices,
and being accountable for results would lead to
improved student achievement.
Studies in other sectors have also documented
that ERP contribute to employee task performance and
overall organizational performance (e.g. Koys, 2001;
Podsakoff et al., 2009; Vey and Campbell, 2004, in
Duyar et.al., 2014). Duyar et.al. (2014) observes that
while they are expected to perform beyond
expectations, teachers are overwhelmed with already
burgeoning tasks and poor climates in schools.
A more holistic approach to assess teachers’
performance was proposed by Murphy (2013), which
stated that the three most common ways to evaluate
teacher effectiveness are gains in test scores, classroom
observations and pupil surveys. Murphy (2013) further
states that gains in pupil test scores are the best
available metric to measure teacher performance. The
main advantage of this measure is its objectivity; and
despite its shortcomings, it is by far the most reliable of
the three measures in predicting a teacher’s future
performance. On the contrary, test and exam results
cannot reliably be used to differentiate teachers who
are just above and below average, but they can
effectively be used to identify
consistently perform well or badly.
teachers
who
In addition, Murphy (2013) also proposes that
while appraisal and evaluation should focus on
classroom activities, teachers’ contributions to extracurricular activities, including sports, trips and clubs,
should also be recognised. This observation is also in
line with UNESCO’s findings in Latin America
(UNESCO Santiago, 2005) which shows that teacher’s
professional performance does not end in the
classroom, because teachers have clear responsibilities
to the school where they work, to the parents of their
students, to the community they serve; and to the
professional associations to which they belong.
6. Evaluation of Teachers Work Performance
Indicators in Indonesia
This section will first map out each of the
components of each of the competency dimensions in
relationship to the heuristic framework of individual
work performance developed by Koopmans et.al.
(2011) and the integrated job context model proposed
by Folami and Jacobs (2005). Any discrepancies will
be further investigated, and referenced back to the role
of teachers in Indonesian context.
The section will provide a review of whether
the teachers work performance indicators used in
Indonesia are in-line with the modern context of work
performance, and the demands laid out for schools of
the 21st century.
Tabel 2. Comparison between the teachers competency components used in Indonesia with the Heuristic IWP
Framework ( Koopmans et.al., 2011).
Competencies
Heuristic IWP Framework
(Koopmans, 2011)
A
Pedagogical Competence
1
Understands the characteristics of students
Task Performance
2
Masters learning theories and principles of
educative learning
Task Performance
3
Development of the curriculum
Task Performance
4
Educational learning activities
Contextual Performance
5
Understand and develop student’s potential
6
Communication with learners
7
Assessment and evaluation
B
Personality Competence
Adaptive Performance
Contextual Performance
Task Performance
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1
Acting in accordance with religious norms,
legal, social, and national culture of Indonesia
Contextual Performance
2
Demonstrate a mature personality and act as a
role model
Contextual Performance
3
Good work ethics, high responsibility, a sense
of pride in being a teacher
Contextual Performance
C
Social Competence
1
Be inclusive, acting objectively, and non
discriminatory
2
Communication with fellow teachers,
educators, parents of students, and the
community
Adaptive Performance
Contextual Performance
D
Professional Competence
1
Mastery of the material, structure of scientific
concepts, and mindsets that support the
subjects of teaching
Task Performance
Develop professionally through reflective
actions
Task Performance
2
Based on Table 2, the teacher competency
appraisal system used in Indonesia mostly addresses
task performance and contextual performance in
Koopmans (2011) framework, while adaptive
performance is only related to two competency
components. The use of the counterproductive work
behavior dimensions seems not to be suitable for the
formal appraisal, but can nonetheless be assessed
through other means such as observations of day-today behavior, peer evaluations, and supervisor
assessments. The lack of adaptive performance
components is very unfortunate, since these are
primary requirements needed to help students acquire
21st Century Skills.
7. Conclusion
In general, the examined teacher work
performance indicators in Indonesia mainly enforce the
traditional role of teachers, and more emphasis on the
role of teachers as innovators and active stakeholders
of the school system is needed. The use of the
integrated job context model will require further
improvement in the teacher work performance
appraisal system in Indonesia, as well as other related
systems such as welfare and career planning. The
improvements will obviously be a complex and lengthy
process, but will benefit the education system in the
long run, since it emphasizes on results rather than a
snapshot of behavior, and will integrate performance
with internal and external factors. Such an endeavor
will hopefully pave the way for the emergence of
teachers that are better prepared to equip students with
21st century skills, and more aligned with their actual
role as a vital component of the school system, and on
a larger scale, the education system.
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No.14/2005 (Indonesia)
Lecturers
on
Teachers
and
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2009
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