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Jeane Tuilan et.al (Evaluation of the Implementation of...)

Evaluation Of The Implementation Of The Free

Senior High School Education Program In North

Sulawesi

Jeane Tuilan

a,1

, Jeane Mantiri

b,2

, Brain Fransisco Supi

c,3

, Margareth I. R. Rantung

d,4

Faculty of Language and Arts, Universitas Negeri Manado

bcd

Faculty of Social Science and Law, Universitas Negeri Manado

jeanetuilan@unima.ac.id ;

jeanelitha@unima.ac.id ;

brainsupit@unima.ac.id ;

margarethrantung@unima.ac.id

Email Corresponding: jeanetuilan@unima.ac.id

ARTICLE INFO

ABSTRACT

Article hisrory:

Accepted: 04 December 2023

Reviced: 17 January 2024

Approved: 25 February 2024

Available online: 29 March

2024

The implementation of free education must be guaranteed to be

implemented in accordance with existing government policies. One of them

is evaluating the implementation of free education. This research aims to

evaluate the implementation of the free senior high school education

program in North Sulawesi Province. The research method used is a

descriptive-qualitative method with purposive sampling technique. Data

collection techniques include observation, interviews and documentation.

The research results show that the evaluation was carried out to measure

the extent to which free education was successfully implemented effectively

and efficiently. Evaluation of the implementation of free education programs

certainly does not necessarily always go according to what has been

determined. By analyzing according to the evaluation approach

implemented at State Senior High Schools in North Sulawesi, it can be

concluded that the implementation of free education evaluation still does

not meet the criteria for efficiency, equity, accuracy and responsiveness.

Keywords:

Evaluation

Implementation

Policy

Free Education Program

High School

This is an open access article under CC BY-SA license

1. Introduction

Education is one of the most important accesses for the nation's children to a decent life

in the future, and is also an important thing in human life starting from the formation of

personality and knowledge (Hidayat & Abdilah, 2019). Various efforts have been made by the

government to fulfill the aspirations of the nation's children, one of which is free education that

can be enjoyed by the nation's children, from elementary school to undergraduate level, they

can experience free education.

Due to the importance of education for human development, every individual needs it.

Education not only gives people special skills but also deeper knowledge—knowledge,

thought, and wisdom. Education is a conscious and planned effort to create an environment and

learning process in which students actively develop their potential to acquire religion,

personality, intelligence, noble character, self-control, and the skills necessary for society and

themselves. As a result, it is said that the quality of education greatly influences the quality of

the human resources it produces.

In the high school level education sector, free education is implemented regardless of

status and degree. The implementation of free education at the high school level must of course

run in the same direction and in accordance with applicable regulations. In implementing the

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government's policy of providing free schools, especially at the elementary to high school

levels, of course it is necessary to evaluate its implementation. Evaluation is a form of

supervision of the implementation of free education, especially at the high school level.

Evaluations are carried out to see to what extent the free education program meets the targets

set by the government, in this case the provincial regional government.

Education is life, education is a learning experience from all environments throughout

life (Abubakar, 2017). Education is everything that influences individual growth. Education is

a conscious and planned effort to create a learning atmosphere where teachers teach students

actively about religious concepts, self-control, personality, intelligence, skills and noble morals

in the learning context. Development is very dependent on the ability of the authorities to

create programs and policies to be implemented by the government and participating

community groups, with the support of existing facilities and infrastructure.

To meet future needs, education has a strategic role. Education is very important for

every parent, society and nation. Education is an important part of a country's efforts to create

ideal human resources (HR). Basically, education is like an experiment that will never end until

human life ends. It is said that, because education is a component of human civilization that

continues to develop over time. This is in line with the natural human potential to always

discover new, innovative and creative things in all areas of life. The government has

established a free education policy to ensure that education is available equally and

appropriately. Methods for encouraging an education system that includes increasing student

participation and improving the quality of education. However, education is something that can

be accessed by all levels of society, especially those who are less fortunate. Free education

ensures that all students receive a proper education without additional costs, as it waives tuition

fees, construction, registration, books, and other operational costs.

Public policy is a decision made by state authorities to regulate people's lives. Public

policy with the aim of distributing state resources and public policy with the aim of absorbing

state resources are different. Regulative versus deregulative is the second distinction of policy

objectives. Regulative policies regulate and limit, while deregulative policies liberate.

From this explanation, it is clear that the government is increasing resources by providing

equal opportunities to students. To achieve this goal, education costs are deducted from tuition

fees, textbooks and other operational costs. Free education provides opportunities for everyone,

especially for those who cannot afford their children's education. Therefore, it is important to

conduct evaluation research on the implementation of free senior high school education in

North Sulawesi province.

2. Method

In conducting this research, researchers used qualitative descriptive methods. Where in

the qualitative research method there is one approach taken, namely the descriptive analysis

method, because by using the descriptive analysis method the researcher is able to explain and

present how the situation actually happened in a more structured manner.

The data collection techniques used were observation, interviews and documentation. In

determining research informants, researchers used purposive sampling. The types of data

obtained in expressing the phenomena that are the object of this research are primary data and

secondary data. Primary data comes from informants in the form of information and data from

interviews with interested parties. Secondary data is data and various information obtained

through searches originating from various literature studies and related documents, through

literature and document studies in the form of journal articles and literature studies.

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3. Result and Discussion

Monitoring and Evaluation

The supervisory team formed by the education service team oversees all activities and use

of school funds. The purpose of this supervision is to prevent as small an error as possible in

carrying out tasks or work. Because of the problem, the process of carrying out tasks or work

can deviate or conflict with applicable procedures and regulations. This is very common,

especially in finance. Supervision is an effort to reduce or avoid problems such as abuse of

authority, illegal levies, leakage and waste of state money, and other types of fraud. Budget

oversight is basically assessing records and ensuring budget implementation is in accordance

with rules, policies, and regulations.

From the explanation above, it can be concluded that there is an independent monitoring

team responsible for supervising the implementation of free education. This supervision team

is responsible for ensuring that all school responsibilities and the use of funds provided by the

government do not occur, whether technical or procedural. No organization will have the same

monitoring system. Internal supervision can be carried out by the principal and other staff

members together with school administrators. In addition, functional supervisors, such as

school supervisors, regional or regional inspectorates, BPIC, BPKP, and other financial

institutions, can carry out supervision. Furthermore, non-governmental organizations (NGOs)

operating in the field of public accounting or education can also carry out supervision.

Evaluation is a process or activity to select, collect, analyze and convey information. This

information can be used for decision making and further program creation. (National Study

Committee on Evaluation (National Study Committee on Evaluation) (Stark & Thomas, 1994).

Evaluation of policy implementation is intended to evaluate whether the type of policy that

needs to be implemented and the appropriate way to do it are appropriate. For this purpose, the

ambiguity-conflict matrix guide can be used to evaluate policy implementation. For example,

policies such as residence cards can be implemented in Indonesia. Political methods can be

used to implement education cost policies. The experimental method allows the

implementation of more effective poverty reduction policies. Symbolic methods make it

possible to implement gender policies. Because public policy cannot be simply released, it

must be monitored, and one way to monitor it is through "policy evaluation". Evaluation

usually aims to determine how effective public policies are so that constituents can be held

accountable for them. The extent to which goals are met. Evaluation is needed to see the gap

between "expectations" and "reality". According to Dunn, there are 3 evaluation functions,

namely:

1. Evaluation provides valid and reliable information about policy performance, showing

how far public actions have achieved value needs and opportunities. In this case,

evaluation reveals how far the goal, objectives and specific targets have been

achieved.

2. Evaluation helps in clarification and criticism of the values underlying the selection of

goals and targets. By identifying and operationalizing goals and targets, the values are

clarified, and the values are criticized by systematically asking whether the goals and

targets are appropriate to the problem being addressed. Analysis can examine

alternative sources of value (e.g., interest groups, civil servants, and clients), as well as

different bases of rationality (technical, economic, legal, social, and substantive). This

is done to determine the appropriateness of goals and objectives.

3. Application of other policy analysis methods, such as problem formulation and

recommendations, assisted by evaluation. Information about poor policy performance

can lead to a reformulation of the policy problem, for example by indicating that goals

and objectives should be redefined.

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In addition, evaluation can help in determining policy alternatives or policy revisions by

indicating that previously preferred policies should be removed and replaced with new ones.

Considered as a way to show that a program is successful or failed in its implementation,

evaluation is often used to indicate stages in the program management cycle, which includes:

1. Evaluation at the planning stage (EXANTE): Evaluation is often used at the planning

stage to select and determine priorities from various options as well as potential ways

to achieve previously established goals.

2. Evaluation at the implementation stage (ONGOING). At the implementation stage,

evaluation is used to determine the level of progress in program implementation

compared to previously determined plans.

3. After the program ends, an evaluation at the post-implementation stage (EX-POST) is

carried out to assess relevance (impact compared to input), effectiveness (impact

compared to output), usefulness (impact compared to results), and sustainability

(impact compared to results and output ). The purpose of evaluation at this post-

implementation stage is to find out whether the program's achievements (outputs,

results, or impacts) are able to overcome the development problems it wants to solve.

However, the model created by William Dunn became very popular during the

development of public policy science.

Evaluation of the public policy environment is divided into two parts: evaluation of the

policy implementation environment and evaluation of the policy formulation environment.

Evaluation of policy formulation provides an explanation of how and why the policy was

created. Evaluation of policy implementation evaluation focuses on what environmental

factors cause policy implementation to fail or succeed. Educational goals can be achieved

through an evaluation process. According to Brikerhoff in Munthe (2015), There are seven

steps that must be taken to carry out an evaluation: namely:

a. Focusing the evaluation,

b. Designing the evaluation,

c. Collecting information,

d. Analyzing and interpreting,

e. Reporting informan,

f. Managing evaluation, and

g. Evaluating evaluation.

In this sense, the initial stage in conducting an evaluation is determining the focus.

Evaluated and the methods that will be used. Then data collection is carried out followed by

analyzing and interpreting the collected data and making a report. Then arrangements are

made for the evaluation and evaluating what has been done in carrying out the overall

evaluation carried out by the evaluator. The purpose of evaluation itself is to obtain accurate

and unbiased information about a program. This information can include how the program is

run, the results and impacts achieved, efficiency, and how the evaluation results are used for

the program itself, namely to make decisions about whether the program should be continued,

improved, or stopped. Apart from that, it is used to prepare subsequent programs and related

policies.

Appraisal, rating, and assessment are all meanings of the term evaluation. Policy

evaluation can be defined as assessing a policy program in terms of performance and solving

public problems. This is because evaluation is usually concerned with gathering information to

assess the benefits or results of a policy (Dunn, 2013). Decisions or actions that directly

regulate the distribution and use of natural, financial and human resources for the public

interest, namely the people, society or citizens, are called public policies (Ray & Surtyani,

2020). In a process perspective, public policy is defined as the result of various ideas, theories,

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ideologies and interests that shape a country's political system. Therefore, policy is a tool used

by the government to take action in certain areas, such as transportation, education, health,

housing, welfare, etc., which are considered to benefit society. In another sense, public policy

is just official regulations such as legislation and government regulations. However, some

people consider public policy to be an outline of actions, strategies and references chosen or

established by the government to implement development projects (Bakry, 2010). There are

three functions of evaluation: first, providing accurate information, second, providing criticism

or suggestions, and third, providing techniques or analysis for future policies (Sari & As’ari,

2021).

Evaluation is research, analysis, providing information, observing objects by looking at

the results. Policy evaluation is an effort to estimate or assess policy, which includes the

substance, implementation and impact of the policy itself (Siagian, 2005). In addition, policy

evaluation must meet several standards such as effectiveness, efficiency, adequacy, equity,

responsiveness and accuracy (Wirawan, 2012).

Implementation of the Free Education Program

Education is a public good and service, and everyone has the right to education and

education. In this case, the government is responsible for doing so, especially its important

role in providing learning opportunities. Therefore, the element of education as a public good

in the dimensions of education policy must be studied from a public policy perspective from

various points of view, both quantitative and qualitative (Sutapa, 2008).

Regional governments are given the freedom to exercise their own autonomy, which has

consequences such as education being regulated by the government and regional governments.

Free and easy education for the people means that education is free and accessible to everyone.

Free schools are schools where children and parents do not have to pay school-managed fees,

such as tuition fees, development, registration and books. Thus, free education is education

where everyone, especially those who are less fortunate, can participate in education at low

cost and easily (Rahman & Nasihin, 2020). The term "free school" is only used verbally. Only

officials, especially candidates for governor, regent or mayor, uttered these remarks. Frankly,

the applicable law does not include the term "free school". There are no expressions

whatsoever. In Law Number 20 of 2003 concerning the National Education System, the terms

"The government is obliged to finance it" and "The government must not charge fees" are

existing. Let's look at the second quote from the principle of legality. Article 31(2) of Law

Number 20 of 2003 concerning the National Education System states that: "The government

and regional governments guarantee the implementation of mandatory minimum education at

the basic education level without charging fees," while Article 31 (2) of the 1945 Law D as an

amendment states that: "Every citizen is obliged to attend basic education and the government

is obliged to pay for it." So, the meaning of this mandate is actually the same as "free". That

cannot be denied (Suyahman, 2016).

Free education can be defined as an effort to free students from school fees as part of

efforts to open wider access for the community to obtain education, which is guaranteed by the

1945 Constitution as the right of every citizen (Aditya et al, 2019). This free education policy

was implemented by the North Sulawesi provincial government with the aim of completing

the compulsory education program in primary and secondary schools to reduce school costs

and improve education management. In this way, the quality of education will increase to

support the achievement of national education goals, namely creating quality resources.

All costs related to the educational process and school construction activities are

considered free for students and their parents. The BOS and BOSDA programs take advantage

of free education issued by the government to ease the burden on society regarding financing

education with 9 years of compulsory education and 12 years of compulsory education

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(Supriyadi, 2016). Free education is defined as education that is available to students without

any cost. However, students still have to pay for free education, such as books and textbooks.

Free education can also be provided through grants or scholarships, which cover some or all of

the cost of education (Munib et al, 2022). Legislation then establishes the right of every

citizen to receive appropriate, relevant and high-quality education. This right also applies

equally in all regions of Indonesia.

To ensure that all citizens have optimal access to education, the government designed a

free education policy. To run free education well, a proper evaluation system is needed. This is

because the government, community and other stakeholders involved and responsible for

educational activities must be responsible for their implementation.

The government actually has the responsibility to provide the widest possible access to

education for everyone, at various social levels, in accordance with the government's program

in the education sector, namely expanding access. In situations like this, the free education

system can be used to expand access to the education in question (Sasmiharti, 2023).

When the free education policy at the upper secondary level was implemented, many

opinions emerged. Each perspective has different reasons to justify it. Likewise, the public and

policy makers from province to district/city have different views. What's worse, candidates for

regent and governor use the free education policy as a promise in their campaigns.

Many of these phenomena certainly occur inconsistencies and errors in practice. Facts on

the ground show that many high schools continue to charge students fees for various reasons.

The school does not ask parents or students directly, but the school committee functions as a

representative for parents. The school committee seems to represent the wishes of the students'

parents. However, this is just a theory because the school committee always supports the

school's goals, which are desired by the students' parents at various costs. The policy of free

education in senior secondary schools must be understood correctly: for whom is it free?

Because the field is available free of charge to all students, no matter their socio-economic

status or position, children of sub-district heads, regents, governors, chancellors, executive,

legislative and judicial officials also enjoy it.

The free education policy must be reviewed to achieve its goals in a situation like this.

Therefore, resetting is needed to create a new pattern for implementing the free education

policy in senior high schools. The free education policy in senior high schools must be

accompanied by legal sanctions if deviations occur, whether intentional or unintentional.

These legal sanctions are intended to deter people who try to use free education. It is very

important to pay attention to the legal consequences due to the attitude of some officials who

want to benefit from the government in all its fields and aspects. So that it is not misused or

taken advantage of by irresponsible parties, strict regulations must be applied to the free

education policy at secondary level in the future. The policy of free education in secondary

schools does not always support the quality of higher education; on the contrary, they cause

the quality of education to decline.

Perspectives on High School Education

"Education is a conscious and planned effort to create a learning atmosphere and learning

process for students to actively develop their potential to have religious spiritual strength, self-

control, personality, intelligence, noble morals and extraordinary learning skills," said Law

No. 20 of 2003 concerning the national education system. Management of free education for

primary and primary schools is the responsibility of the district government and high schools

are the responsibility of the province (Rolos et al, 2022). In accordance with the mandate of

Law Number 23 of 2014 concerning Regional Government, the management of Senior High

Schools (SMA) in Indonesia was transferred in 2017. Junior High Schools (SMP) and

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Elementary Schools (SD) were only managed by the district government, but are now

managed by the provincial government (Sumuweng, 2021).

Because the responsibilities of policy makers differ at each level of government and must

be in accordance with their authority, policies are created and implemented at all levels of

government. It provides an overview of the policy making process and the various

considerations associated with it according to the stages of policy formulation (Gerston, 2014).

Senior High School (SMA) is a level of formal secondary education in Indonesia that

begins after graduating from junior high school or equivalent. This level of education starts

from Grade 10 to Grade 12 and involves students who are generally aged between 15 and 18

years. In the first year, or Grade 10, students are given general subjects, but in the second year,

or Grade 11, students are required to choose one of three available majors: Science, Social

Sciences, or Languages, and the curriculum is tailored to the major they choose.

There are no high schools included in the nine-year compulsory education program. This

program includes six years of elementary school (or equivalent) and three years of junior high

school (or equivalent) as planned by the government. On the other hand, since 2005, several

regions such as Yogyakarta City and Bantul Regency have implemented a 12 year compulsory

education program by adding Senior High School (SMA) which is taken within 3 years as a

required education program, including in North Sulawesi Province.

4. Conclusion

Based on the discussion above, it can be concluded that the implementation of free senior

high school education in North Sulawesi still does not meet the evaluation criteria for the

North Sulawesi government's free education implementation policy, namely: The target group

does not receive sufficient assistance from the regional government, and the recipients are not

on target, meaning Recipients with qualifications that do not match receive free educational

assistance, while students in categories that comply with existing regulations are not included

in the target category. The North Sulawesi Provincial Government must be more significant

and careful in implementing the provision of free education which must be in accordance with

applicable regulations, so that there is no mismatch between the target groups receiving free

education. Equity: Students attending private schools do not have access to free education,

indicating that free education is not evenly distributed throughout the North Sulawesi region.

Responsive: The public's perception of free education is inconsistent due to a lack of

information about this regulation, so that many students are not included in the target group

receiving free education. Accuracy: the assistance provided has not achieved the policy

objectives. Apart from that, the criteria that have been met meet the requirements stated in the

regulations, namely effectiveness, and tuition fee exemption has been implemented in

Tomohon City. Regional government assistance and its effectiveness have helped parents, but

it needs to be reviewed whether the target group receiving free education is appropriate in

accordance with applicable rules and policies.

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