1.

PROJECT SUMMARY
Project Title

Madrasah Aliyah Vocational Training Project

Donor

Islamic Development Bank (IDB)

Project Financing
Agreement

1. First project component is the construction of workshop

buildings, which is allocated in the agreement of 2-IND0053. This Project cost is estimated to be US$
12,871,000. The estimated total number of workshop is
increased to 229 workshop buildings. These buildings are
for 82 Madrasah Aliyah distributed in 26 provinces in
Indonesia. It is administered as 2-IND-0053;
2. Second project component is the vocational training
equipment procurement, which is allocated in the
agreement of 2-IND-0054. The budget of this component
is US$ 9,079,000. The equipment is procured for 224
workshops for 82 Madrasah Aliyah distributed in 26
provinces in Indonesia. It is administered as 2-IND-0054.

Main Objectives

Construction of physical facilities of vocational workshop

buildings of Madrasah Aliyah;
1. Procurement and installation of vocational equipment for
the workshop building that can serve as a practice for
vocational training and applied technology for promoting
Islamic values in science and technology;
2. Training and upgrading of teachers for vocational
Madrasah Aliyah;
3. Curriculum development and instructional materials
production that accommodate the vocational training at
Madrasah Aliyah;
4. Developing of vocational training planning and
management capability within the Ministry of Religious
Affairs;
5. Establishing and maintaining contacts with industry;
6. Development of credit facilities to allow school-leavers to
set themselves up in a business of their own.

Executing Agency

The Ministry of Religious Affairs

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Project
Administration

1. Central Project Management Implementation Unit (CPIU):

Madrasah Aliyah Vocational Training Project,
Directorate General for the Development of Islamic
Institutions, Ministry of Religious Affairs (MORA),
MORA building, 7th floor, Room C-707,
Jl. Lapangan Banteng kav. 3-4,
Jakarta, INDONESIA
2. Provincial Project Implementation Unit (PPIU):
Sub-project Manager of the Development of Secondary
Islamic Institution, Provincial Region Office of the Ministry
of Religious Affairs.

Project Schedule

Initial schedule

: September 1996 December 1999.

Extended schedule: up to December 2001

Source of Fund

Islamic Development Bank (IDB) Lease Agreement for:

Workshop Building Construction: US$ 12,871,000 (2-IND0053);

Training Equipment Procurement: US$ 9,079,000 (2-IND0054).

Government of Indonesia (GOI) fund allotment for teacher

training, developing suitable curriculum and operational cost
for vocational training in Madrasah Aliyah.
Project Activity
Phases

Administratively, the project activities has been conducted in

accordance with the Indonesian fiscal years, as follows:
The implementation of program 2-IND-0053:
1. Fiscal budget 1997/1998; the project expenses under this
fiscal year for the construction of the building for
vocational training was IDR 53,534,266,657 However, in
practice, this budget was disbursed until end of year 2000.
2. Fiscal budget 1998/1999; the project expenses under this
fiscal year for the construction of the building for
vocational training was IDR 2,162,095,000. They were
the buildings that were not accommodated in the fiscal
budget of 1997/1998. In practice, this budget was also
disbursed until end of year 2000.
3. Fiscal budget 1999/2000; the project expenses under this
fiscal year for the construction of the stalls, fish ponds,
poultry pens, etc. for vocational training purposes was
IDR 6,937,619,470. In practice, this budget was also
disbursed until end of year 2000, however, spesific for the

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province of South Sulawesi, there was administrative

problems that its disbursement was solved until end of
year 2001.
The implementation of program 2-IND-0054:
This component consists of 18 contracts, totaling US$
5.064.688,31 and IDR 34.973.618.286

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2. PROJECT ACTIVITY OUTLINE

2.1. PROJECT ORGANIZATION STRUCTURE
The administration for the civil works of vocational training buildings and the
vocational equipment procurement for Madrasah Aliyah located in 26 provinces in
Indonesia was a large works. Under this perception, the responsibility of the
implementation of this work was arranged as follows:
1. The construction work was distributed to regions (provincial structure),
considering that the provincial sub project manager should understand the
detailed condition of Madrasah Aliyahs located in his region;
2. The knowledge and experience in managing foreign financing project could have
been transferred into provincial resources;
3. To support the regional autonomy policy in terms of regions authority
empowerment the regional office of each province of the Ministry of Religious
Affairs was given responsibility to develop the facilities of Madrasah Aliyahs.

On the other hand, the vocational equipment procurement was conducted centrally in
the Ministry of Religious Affairs, under consideration that:
1. The vocational equipment should have been related and shall support the
practice of curriculum content, which have been developed by central government
for these years. The curriculum development aims at strengthening the quality of
curriculum teaching and content of all Madrasah Aliyahs.
2. In implementing the assessment of curriculum development, the academic
consultant should discuss with all related government institutions, covering the
material and regulations. Therefore, the placement of academic consultant
centrally is beneficial. The results of academic consultant works were then
addressed into vocational equipment procurement, covering the types,
specification, quantity as well as estimated price.
Upon the consideration as above, the project management of Madrasah Aliyah
Vocational Training Project was arranged into two components, consisting of CPIU
(Central Project Implementation Unit) and PPIU (Provincial Project Implementation
Unit), which are illustrated in following figure 2.1a, 2.1b and 2.1c.

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Pemimpin Proyek Madrasah Aliyah Vocational Training Project

(CPIU = Central Project Implementation Unit / Unit Pelaksana Proyek Pusat)

Consultant

Project Madrasah
Aliyah Vocational
Training

Sub Project Regional Office of

each province under the Ministry
of Religious Affairs

Bid
Committee
Provincial
Tender
Bid
Committee

Implementation

Implementation
Program held in Jakarta, centrally:
Program of 2-IND-0054: vocational
equipment procurement
Program under government budget:
curriculum development, teacher training,
and other curriculum component
development

Program held provincially:

Detailed engineering design,
Supervision, and
Construction of vocational training build.

Figure 2.1a: Project Structure

Islamic
Development
Bank

Management of Supervision
and Monitoring untuk for
the Implementation of IND
0053 (CPIU)

The Implementation of IND

0053 on Site (PPIU)

Bidding Process
Progress Summary

Examination Report

Progress

Disbursement Request

Payment Request

Monitoring and
Project Supervision

Construction
Works

Ministry of
Finance
Jakarta

Contract

Maintenance
Utilization

Figure 2.1b: Relation Between CPIU and PPIU for IND 0053 Program
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Islamic
Development
Bank

Madrasah Aliyah

The Implementation of IND

0054 at Site (CPIU)

The Implementation of
IND 0054 Program at Site
Regionally (PPIU)

Academic Consultant
Assignment Process
Results of Academic
Consultant Works

Background and
Existing Conditions

Bidding Documents for

Equipment
Procurement
Bidding Process

Report

Contract

Report

Ministry of
Finance
Jakarta

Equipment
Procurement

Report

Progress Works

Site Monitoring,
Supervision and
Approval

Delivery, Installation & Training

Disbursement Docs

Maintenance and
Warranty Period
Figure 2.1c: Relation Between CPIU, Madrasah Aliyah and PPIU
For IND 0054 Program

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Pemeliharaan / Masa
Warranty
Utilization

2.2. PROJECT BUDGETING ARRANGEMENT

Administratively, the implementation of IND 0053 program was documented into DIP
(Daftar Isian Proyek / Budgeting Book of Indonesian Government Project) within
three stages, as follows:
1) First development stage was administered into DIP of fiscal year 1997/1998. In
this fiscal year 1997/1998, the project had covered numbers of vocational
buildings of Madrasah Aliyah that to be constructed including vocational
equipment estimated needs.
2) After the issuance of budgeting book DIP 1997/1998, it was then realized that
there were several schools who had not been administered. Another 10 (ten)
vocational schools were added into budgeting book DIP of fiscal year 1998/1999
under 7 (seven) Madrasah Aliyahs located in 5 (five) provinces.
3) The monitoring and evaluation conducted by project had resulted that at mid of
1998 there was a sudden increment of construction material price due to
economic crisis in Indonesia. Rough figure of the assessment showed that
although there was an increase to all civil works contracts, however due to the
devaluation value of rupiah (IDR) there would be a balance of approximately 30%
of IND 0053.
On the other hand, another evaluation result conducted by the project showed
that the academic assessment recommended additional facilities to complete
vocational practices, such as poultry pens, fishery ponds, etc. After IDB approval
was issued during IDB mission in Bappenas on June 1998, these infrastructures
facilities were arranged in budgeting book (DIP) of fiscal year 1999/2000.
Although there was an increase of construction cost, however the total budget
was reduced due to the devaluation of IDR to US$. The balance, which was
approximately 20%, was then requested to IDB to add number of Madrasah
Aliyah beyond the scope of IND 0053. This request had made into proposal and
was delivered to IDB. However, IDB did not approve this amendment,
considering that the IND 0053 program had been achieved completely.

2.3. PROBLEMS DURING PROJECT IMPLEMENTATION

The administrative works had been started by almost all sub project managers since
fiscal year 1997/1998. Since then, several significant problems had arisen, at which
their causes could be classified into five categories, as follows:
1) First problem category was the geographical condition. Although, this condition
was not a major cause, however many times it prolonged several activities
period, such as delivery of important documents and overall responses from all
sub project managers that were necessary to proceed further project actions.

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2) Second problem category is that there was an administration mistake written in

the budgeting book (DIP) of 1997/1998. It was written that the disbursement
process applied special account (SA) or Rekening Khusus (RK). However, in the
financing agreement of IND 0053 and IND 0054, it said that the system followed
Direct Payment or Pembayaran Langsung (PL).
The mistaken statement had made all sub project managers issued un-match
project actions. The SA system means that the fund has already transferred into
Indonesian account (MOF or Bank of Indonesia) and the project implementation
procedures similarly the same with projects under governmental budget.
Therefore, all sub project managers in 26 provinces had activated detailed
engineering design consultants as well as the supervision works preparation.
Several sub project managers had continued to bidding process of construction
works. This condition was happened until end of 1997.
The condition above was underway without IDB approval or even IDB
acknowledgement. The efforts of CPIU to overcome this problem:
To revise the budgeting book, changing the SA statement into DP statement;
To provide training for all sub project managers from all provinces, in relation
with the knowledge and procedures on how to implement project under Direct
Payment method. In parallel, training was also given to all sub project
managers on IDB procedures and manners;
To request IDB approval on dividing civil works into two components
consisting of (1) detailed engineering design and supervision, and (2)
construction works;
To request IDB approval on all project works that their bidding process had
been done and/or the work had already been underway. The IDB approval is
very important for the process of disbursement through Bappenas and Ministry
of Finance.
3) The third problem category was the occurrence of economic crisis in Indonesia,
which resulted to the sharp fluctuate devaluation of IDR to US$ starting in early
1998. This condition had made all construction cost components became
unstable in all regions. Therefore, all contractors requested an amendment of
increment of construction price.
A construction price escalation should be carried out. An escalation document
had been delivered to IDB on 29 August 1998 and it was approved on 3 October
1998 (letter number: 41/IND4369).
However, the main cause of delay was due to the unavailability of Indonesian
escalation procedure to be applied to all regions. The escalation value issued by
Bappenas on 12 June 1998, which was used as a basis of escalation document
on 29 August 1998, then could not be applied any more because the fluctuate
price had been increased much higher. Therefore, the project used prices of all
construction cost components from authorized government institution from each
region. Finally, Bappenas gave his first approval on mid of March 1999 to West
Java province. This success was then disseminated to other regions. The result
of escalation price was different among regions.

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Specific for IND 0054 program (equipment procurement), there was not any
significant problem because most of the contract was made in US$ basis.
However, an IDR price component might become a problem in case the value of
IDR to US$ might be increased. Fortunately, until end of project, this case was
not happen.
4) The fourth problem, which cause to project schedule, was the ethnical dispute in
several regions especially in Aceh, Kalimantan and Maluku.
5) The fifth problem was the impact of the application of regional autonomy policies.
Considering the problems described in point 2 and 3 above, it was expected that
the sub project in all regions was led by the same sub project managers, who
had already been familiar with the problems and IDB procedures. Factually,
Regional Offices of MORA in several provinces had changed the sub project
managers who did not understand the on-going problems and were not familiar
with IDB procedures. This also contributed the delay of the project.

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3. ASSESSMENT
3.1. CRITERIA OF MADRASAH ALIYAH RECEIVING THIS
PROJECT
The criteria in selecting the Madrasah Aliyah, were:

Availability of land (space). Madrasah Aliyah following this program should have
sufficient land for the additional building to be used for vocational teaching and
practices
The ability to provide teachers and human resources development
implementation, including training and teachers allowance.
The ability to maintain the building and equipment including furniture.
The acceptance to implement collaboration scheme with other schools and
industries.
Response of communities surrounding Madrasah Aliyah.

The criteria applied to select Madrasah Aliyah was sufficient to achieve this project.
It is recommended that the following additional criteria may give more advantages to
project benefits:

The perception of Madrasah Aliyah leaders in managing self-reliant school,

especially under secondary school autonomy;
The capability of Madrasah Aliyah management in applying vocational based
management in general and for the purpose of secondary school autonomy. This
criteria is a valuable input to design the appropriate management training in line
with the vocational training.

3.2. PROJECT COMPONENT ARRANGEMENT

For the actualization of this project, there are several major items that should be
considered:
1) The necessary parties:
Consultancy service for project management.
Consultancy service for education, academic and curriculum.
Consultancy service for human resources training and development.
Consultancy service for equipment system.
Consultancy service for detailed engineering design.
Consultancy service for construction supervision.
Construction service for construction work.
Supplier service for equipment procurement.
Due to the disarrangement at the initiation of this project, many parties were not
accommodated, such as allocation for project management and detailed
engineering design and construction supervision. However, the project had

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10

solved it by request of this allocation to IDB (and was approved) and covered
other necessary parties by appointing experts as an individual consultants, and by
included it into other allotment, such as project management advisory, equipment
system within consultancy service for human resources training and teaching
material development.
2) The domestic budget as government participation (dana pendamping). This
allocation was used for government contribution to this project. It had started
from 1997/1998 fiscal year for recruiting teacher and teacher training and
teaching material development, consisting books and vocational guidelines.
Upon the initial project condition, the project breakdown structure (figure 2.1) was
developed in order to anticipate the weaknesses as describe above.

3.3. PROJECT IMPLEMENTATION PROCEDURES ASSESSMENT

The progress of this project were affected by the following conditions:
1) Communication between project and IDB:
Formal correspondence used facsimile letter.
Documents were sent to IDB through fast delivery service of DHL.
Weakness:
Sometimes responses were given for a long period of time.
2) General condition of IDB. IDB procedures on financial matters such as Bank
guarantee is very strict. In the guidelines, it mentions that Bank Guarantee
should be addressed to IDB.
In IND 0053 program, the construction works were disseminated to the regions
meaning that the consultants and contractors were regionally basis, therefore all
bonds or guarantee were issued by regional branches of financial institutions or
banks. In this matter, IDB gave the authorization to the sub project managers,
meaning that the bonds addresses were directed to the sub project managers,
and also the bonds used the banks or insurances format instead of IDBs format.
This really has helped the progress of the project.
3) Other project implementation stages have followed IDB procedures. Each project
stages were proceeded after IDB had given his approval.
Recommendation:
This condition should be supported by the correspondence method (point (1)
above).
An additional correspondence based upon Internet communication (through
e-mail) actually would be helpful.
4) The application of direct payment method needs detailed information on financial
matters related to international banking transfer. This condition was not fully
understood by the sub project managers. Several certificate of payment
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11

documents were not given detailed and completed information, therefore several
disbursement process were perceived incorrectly, such as the transferred
payment was returned by the Indonesian banks due to unclear information, and
few money transfers were less than the disbursement request (Maluku, West
Nusa Tenggara and South Sumatera cases).
By the help of the Ministry of Finance (MOF), actually this matter could be
minimized. However, more than hundreds of contracts were made in this project,
meaning that more than hundreds disbursement request were made to IDB,
therefore CPIU and KPKN Jakarta VI (Ministry of Finance) faced it difficult to
ensure that all information in Certificate of Payment documents had been
completed to be delivered to IDB.
5) Other issues which in accordance with Keppres 16/1994 and 18/2000, but not in
line with IDB procedures, for example:
Indonesia regulation (Keppres 16/1994): 5% of contract for performance bond
IDB procedures: a minimum of 10% of contract for performance bond
Indonesia regulation (Keppres 16/1994): 30% for advanced payment
IDB procedures: 20% maximum for advanced payment
Project document reports for Bappenas and Ministry of Finance (MOF) which
should be made in different format, and project documents reports to IDB
which also in different format with Bappenas and MOF.
This matter had already been covered in the training material to fulfil the
inexperience sub project managers.

3.4. THE IMPLEMENTATION OF TEACHER RECRUITMENT AND

TRAINING, AND TEACHING MATERIAL DEVELOPMENT
The implementation of teacher recruitment and training, as well as teaching material
development was satisfied. 637 teachers were trained under different aspects. They
are aware that they have wide opportunities in achieving vocational studies in
Madrasah Aliyah. Their contribution is supported by the Madrasah Aliyah
management.

3.5. PROJECT OUTPUT

The output of the project has been in accordance with the financing agreement of
IND 0053 and IND 0054. The comparison between the initial project proposal and
project output is described in following table 3.1.

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Table 3.1: A Brief Description of Project Output The Comparison Between Expected Project Results in Project Proposal and
Project Actual Results at End of Project
No.

Expected Project Results in Project Proposal

1 Eighty two Madrasah Aliyah spread out all 27 provinces will be equipped to
train a total of 4440 students each year in the proposed trades of :

Automotives

Radio & TV Repair

Computer Repair

Motorcycle Repairing

Boat Engine Repair

Electrical Appliance Repair

Refrigerator/AC Repair

Welding (gas & Electric)

Furniture Production and Building Woodwork

Tailoring

Integrated Agriculture with poultry Farming

Integrated Agriculture with Fish farming

Secretarial Training

Computer Operator

Catering
In each school, 3 trades will be introduced with the exception of those
schools which are too small and in which only 2 or 1 trade can be
introduced.
2 The 82 schools will be provides with additional accommodation of
workshops, classroom and other requirements as well as equipment,
furniture and a supply of materials

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Project Actual Results at End of Project

110 civil works consisting of vocational buildings and their
supplementary (such as pens, livestock stalls, fishery ponds, etc) for
the purpose of vocational training for 82 Madrasah Aliyah spread
out in 26 provinces have been constructed.
229 Madrasah Aliyah have been provided equipment, consisting of
18 package, as follows:
(1) Tailoring
(2) Catering
(3) Furniture Production and Building Woodwork
(4) Automotive
(5) Motorcycle Repairing
(6) Boat Engine Repair
(7) Welding
(8) Electrical Appliance Repair
(9) Computer repair
(10) Radio and TV repair
(11) Refrigerator/AC Repair
(12) Poultry Based Integrated Agriculture
(13) Fishery Based Integrated Agriculture
(14) Livestock Based Integrated Agriculture
(15) Food Technology
(16) Computer Operator
(17) Secretarial training
(18) Central and Regional Office equipment
In each school, number of trades introduced is according to their
capacity and area, therefore some schools have received 3 trades
maximum, others 2 trades or 1 trade.

13

Table 3.1: A Brief Description of Project Output The Comparison Between Expected Project Results in Project Proposal and
Project Actual Results at End of Project (Contd)
No.

Expected Project Results in Project Proposal

Project Actual Results at End of Project

3 444 teacher on the basis of 2 teachers per trade per school will be recruited
from existing technical and vocational teacher training institutions (IKIP and
equivalent) and be upgraded for teaching vocational subjects.

More than 600 teachers and vocational instructors have been trained
within 4 (four) fiscal years on different aspects of training program on
advisory and management; vocational training related to engineering
aspects, such as radio & TV repair, furniture production and wood
working; preparing, as well as modifying and developing teaching
material method; vocational aspects related to agriculture fields.
Most of them are recruited teachers specially assigned to teach
vocational subjects.

4 The National Project Coordinator, 5 Management Specialist, 4 Regional

Coordinators, 23 subject specialist and 82 principals will be trained in their
respective lines of duty to improve their abilities for effective planning,
management, supervision, monitoring and evaluation of vocational training
programs using different modalities.
This will further strengthen the sub-directors which will be established
under the directorate for Islamic Schools Development.

Other potential resources who have been trained on vocational

curriculum:

85 Head-masters of Madrasah Aliyah schools;

26 Heads of Madrasah Aliyah Divisions of MORA provincial

offices;

242 Vocational Training Teachers from all over Indonesia.

5 Other intrinsic gains of the project will be the development of confidence in

the target beneficiaries to make a valuable contribution in the national
development efforts, improvement of the quality of life, particularly of lowincome families, and involvement of the local community in human
resources development activities.

Briefly, this project has increased the awareness of most of

Madrasah Aliyah management on the importance of science and
technology content at Madrasah Aliyah;
Need to conduct before and after study for this Project Impact
Analysis.

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4. CONCLUSIONS AND RECOMMENDATION

1) About the project:

Project problems during implementation period. Upon the description of

the application of this project, there were two national cases which were the
main causes to the project delay, IDR devaluation and ethnical disputes, which
really have been very rare.

It was the first foreign financing project applying the direct payment
disbursement method conducted by the Ministry of Religious Affairs.
Currently, the Ministry has already experience in other foreign financing
project using other disbursement system such as Special Account and L/C.
Therefore, the experience of this Ministry for implementing any type of foreign
financing project has been completed.

Although this project had faced significant problems, however the project
officers had completed successfully. It is expected that the project officers
should be one of competitive advantages of the Ministrys human resources.

The experience of this project should be used as a sound study cases in the
management courses of training division of the Ministry of Religious Affairs.

2) Project outputs:

The project has achieved all tasks according to the financing agreement
number IND 0053 and 0054.

Under the perspective of civil works, the project has added sufficient numbers
of infrastructures and facilities, such as poultry pens and fishery ponds,
whereas these infrastructures were not, firstly, accommodated in the IND 0053
program.

The equipment has been procured according to the requirement of the

agreement IND 0054.

The teacher recruitment and training, as well as teaching material

development have supported the practice of vocational equipment and
curriculum.

3) Beneficiaries (Madrasah Aliyahs):

The acceptance of Madrasah Aliyah in this project is a sound basis to

empower senior high education level for the future application of education
autonomy of secondary school (senior high school) level.

The result of monitoring in several Madrasah Aliyah, it is seen that there is a

weaknesses of vocational based management in almost all Madrasah Aliyahs,

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15

especially under the education autonomy characteristic, which will be applied

in the future.
In anticipating this problem, the Ministry of Religious Affairs is recommended
to provide further detailed training aiming at developing the capacity and
capability of vocational management including entrepreneurship, creativity and
innovative character building.

Sustaining the point above, the empowerment of teachers in developing

applied technologies based upon vocational practice is beneficial to establish
creativity environment at school.

The networks among Madrasah Aliyahs, and between Madrasah Aliyahs

and Industries are recommended to be established. Almost all Madrasah
Aliyahs have not started this strategy, even many Madrasah Aliyahs do not
have any concept about this opportunity. It hoped that the Ministry might lead
several Madrasah Aliyahs into an established network between them and
industries. The capacity of the procured vocational laboratory equipment may
support this network. This network also gives tangible and intangible
advantages to the students as well as their graduates in entering the labour
market.
An example of collaboration scheme among Madrasah Aliyahs:
Madrasah Aliyah having tailoring vocational may become a source of school
outfit for other Madrasah Aliyahs that do not have this facility. The process of
outfit practice may become the vocational practice for the students, and its
income may be used for the expenditure for vocational practice, as well as for
the maintenance and sustainability of the equipment.

4) Project impacts:
At present, the evaluation activity to measure the performance of project impact
may not be accurate due to:

The implementation strategy and method of the concept and self-reliant of

Madrasah Aliyah have not fully understood by all management of Madrasah
Aliyahs. Therefore, the Ministry of Religious Affairs should still support them,
at least support several Madrasah Aliyahs as a model of each type of
vocational trades.

The evaluation to measure the performance should be based upon the

comparison of before and after study. Before Study, an assessment of
Madrasah Aliyah without this project, and After Study an assessment of
Madrasah Aliyah after receiving this project.

The project benefit and impacts will give accurate picture, after the Madrasah
Aliyahs receiving this project have their alumni who benefiting the IND 0054
program. The fastest period to conduct project benefit and impacts analysis
(after study) will be at the end of 2003.

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