Policy of Inclusive Education for Education for All in Indonesia

The purpose of this article is to discuss the basic and essential contents of the policy of inclusive education in Indonesia. Education is a fundamental right for all citizen protected under the national laws as well as international conventions. Regardless of any condition and circumstances, it is guaranteed that every child has the right for education, as it is also clearly highlighted in the global program of Education for All (EFA). In line with this, the policy of inclusive education is the recent worldwide agenda for educational reform toward the no-discrimination in education. This paper is a content and analytic review on the national policy of inclusive education towards the education for all in Indonesia. Indonesia declared the Indonesia toward Inclusive Education on August 2011, and up to year 2015, 12 out of 34 provinces declared as the implementors province of inclusive education. The national policy of inclusive education in Indonesia called as The Regulation of National Ministry of Education (PERMENDIKNAS) Number 70 Year 2009. It was found that the number of the school implementing the inclusive education policy has significantly increased, supported also by the province and district related regulations. However, the context of the policy of inclusive education as the major guideline for the policy implementation has lead to various and even narrow perspective on the concept of inclusion. Much progress has been made, yet it is still much left to be accomplished to achieve the fundamental and universal rights on education to


I. INTRODUCTION
Education is a fundamental right for all citizen protected under the national laws as well as international conventions.Regardless of any condition and circumstances, it is guaranteed that every child has the right for education, as it is also clearly highlighted in the global program of Education for All (EFA).The World Declaration on Education for All year 1990 stated that "every personchild, youth and adultshall be able to benefit from educational opportunities designed to meet their basic learning needs" (UNESCO, 2009) .
The policy of inclusive education, the recent worldwide agenda for educational reform toward the no-discrimination in education, reflects the goals of EFA.In other word, inclusive education is a key strategy to achive EFA ensuring all learners for compulsory education.The goals of EFA mentioned above are as follows (UNESCO, 2009): 1. Expanding and improving comprehensive early childhood care and education, especially for the most vulnerable and disadvantaged children; 2. Ensuring that by 2015 all children, particularly girls, children in difficult circumstances and those belonging to ethnic minorities, have access to and complete, free and compulsory primary education of good quality; 3. Ensuring that the learning needs of all young people and adults are met through equitable access to appropriate learning and life-skills programmes; 4. Achieving a 50 per cent improvement in levels of adult literacy by 2015, especially for women, and equitable access to basic and continuing education for all adults; 5. Eliminating gender disparities in primary and secondary education by 2005, and achieving gender equality in education by 2015, with a focus on ensuring girls' full and equal access to and achievement in basic education of good quality; 6. Improving all aspects of the quality of education, and ensuring excellence of all so that recognized and measurable learning outcomes are achieved by all, especially in literacy, numeracy and essential life skills.Such compulsory for all children for educational access in education is also applied worldwide.

Indonesia declared the
The government commitment to implement inclusive education reflects the constitutional right to all citizen to obtain education regardless their condition.It is stated that "it became illegal for schools to exclude children based on their disability" (Powell, 2012) .It also means as unjustifiable for any discrimination in education, and therefore exclusion of anyone from education is considered as a violation of law.This paper will review the national policy of inclusive education in Indonesia called as the Regulation of National Ministry of Education (Permendiknas) Number 70 Year 2009, especifically in term of implisit definition and primary provisions of the inclusive education.

II. METHOD
A content and analytic review on the national policy of inclusive education towards the education for all in Indonesia is performed as a method in this literature review paper.A document analysis is increasingly recognized as a promising and innovative strategy for collecting and assessing data and are produced in and reflect specific social and historical circumstances (Segeren and Kutsuruba, 2012).Data from other resources is also applied to support the findings of the analysis.

A. Definitions of Inclusive Education
The Thus, the policy of inclusive education of Indonesia with Permendiknas 70/2009 has already indicated the specialization for accommodate learners with special needs in the sense of Person with disabilities.The policy does not show the consideraton on other possible excluded or marginalized / vulnarable children under the circumstances of social economic status, gender, religion, ethnicity, etc.In fact, the comprehension value of inclusiveness is still encountered by misunderstandings among others that inclusion is the same as difable which then accumulated in general understanding that inclusive education is education that accommodate people with disability only.In newspaper for example, it is often found even in a large headline written like: "inclusive students have difficulty understanding charts and drawings", "schools should receive inclusive students", "inclusive students are not privileged", and the like.
Similarly, the content of regional policy also acoomodate the perspective view that the implementation of inclusive education means to accommodate students with disabilities. An

B. Primary Provisions
The Indonesian education system accomodate four level of education i.e early childhood, basic, secondary, and higher education (see Table 1).In related to this, article 4 of the Permendiknas 70/2009 requires the district/municipal governments to appoint at least one primary school and one junior secondary school as well as one senior or vocational secondary school (in the level of secondary education) in each sub-district to implement inclusive education.It was also explained that other schools which are not appointed by the government to implement inclusive education are allowed to accept children with special needs.Another provision in this policy states that if within the time specified, the allocation of learners as referred above cannot be fulfilled, the educational unit may accept normal learners.The mention of "normal learners" in this policy indicates a label that distinguishes the presence of "abnormal" learners who in this case refer to learners with disabilities or special needs.It means that in this policy, that with the aim of not discriminating, but instead raises a term that denotes a discrimination.
In addition, as a part of educational education system in Indonesia, there is also a regulation on the system of special education.This segregated system for special schools include kinderganten, primary, junior secondary, and senior secondary schools.These schools are under the responsibility of Directorate of Special Education in the Ministry of National Education of Indonesia.Thus, although it has moved to the latest approach of inclusive education to eliminate discrimination and achieve education for all, Indonesia is also still implementing a segregation system.The types of the special schools (called as Sekolah Luar Biasa/SLB) provided are: 1. SLB A: fro visual impairment 2. SLB B: for hearing impairment 3. SLB C: for mild intellectual disability 4. SLB C1:for moderate intellectual disability 5. SLB D: fro physical impairment 6. SLB E: for emotional-social behaviour difficulties 7. SLB G: for multiple disabilities 8. SLB M: for autistic children The concept of inclusive education is understood as education for persons with disabilities by the vast majority of the community, including even street level bureaucrats in schools (such as teachers and principals).Furthermore, as explained above, in some media reports, the mention of learners with special needs is often synonymous and interchangeably with the term of inclusive students.This fact can be understood from the beginning actually, since the Permendikna 70/2009 is about inclusive education for learners who have abnormalities and have the potential of intelligence and / or special talents.So the policy of inclusive education in Indonesia through Permendiknas is intended to accommodate education for all for students with disabilities.In other words, in this policy although it also mentions child victims of drug abuse, drugs, and other addictive substances, but in general inclusive education is missunderstood as education to accommodate people with disabilities only.Moreover, the segregation system is also implemented.

A. Narrowed Perspectives on Inclusive Education
The meaning of inclusive education in this study is found to be viewed as accomodating childrens with diabilities only.It is also globally recognized that "inclusive education is still thought of in some countries as an approach to serving childeren with disabilities within general educational settings.
Internationally, however, it is increasingly seen more broadly as a reform that supports and welcomes diversity amongst all learners" (UNESCO, 2009).The development of inclusive education initially focuses on person with disabilities and learning difficulties (Ainscow et al., 2006) and then extends to all marginalized or at risk of exclusion due to factors such as ability, gender, race, ethnicity, religion, language, sexuality, social status and economics (Gerschel, 2003).
Other studies also reported that some consider it in a broader concept concerned with identifying and removing barriers to participation and achievement for all students (Booth and Advances in Social Science, Education and Humanities Research (ASSEHR), volume 141 Ascow , 2002).Mara Sapon-Shevin (2003) highlighted that "Inclusion is not about disability, nor is it only about schools.Inclusion is about social justice.What kind of world do we want to create and how should we educate children for that world?What kinds of skills and commitments do people need to thrive in a diverse society?"Table 3 shows the definition of inclusion to help deeper understanding the fundamental meaning of inclusion.However, the literacy rate Indonesia is still quite high despite the significant achievement of the basic program for all (Manan, 2015).Although Indonesia has made remarkable progress in improving access to basic education, 6.7% of primary school age children and 23.4% of junior secondary school age children are not enrolled in schools (MOEC, Statistics, 2014).School participation rate shows an increase in 10 years (2003)(2004)(2005)(2006)(2007)(2008)(2009)(2010)(2011)(2012)(2013).Nontheless, as can be seen in Table 4, the school participation rate for those on the group age of 16-18 years old only reached 63.27%.Furthermore, it was reported that the number of drop out student before reaching high school reached 3.1million per year, since only 2.2 millions student will graduate from high school out of 5.3 million entered the first grade (Baswedan, 2012).Regional disparities between and within provinces were also reported to be highly considered.The net enrolment rate ranges from 94.7% in Bali to 83.1% in West Papua at primary school and from 94.7% in the Special Capital Region (DKI) of Jakarta to 31.6% in Papua fo secondary school.Several barriers reported in some study findings on the implemetation of inclusive education in Indonesia include the lack of trained teachers and their understanding (Prastiyono, 2013;Yusuf 2016) as well as lack of information and discriminatory attitude towards person with disabilities (Poernomo, 2016).Even in New Zealand, a study findings stated that "the inadequate number and low level of school counselors at the primary school level (one counselor for every three schools) was considered insufficient for services to be effective" (Mundia, 2009).With the various successes achieved, it can be said that the implementation of inclusive education policy in Indonesia has supported the achievement of EFA objectives although it is not yet maximal."Despite there have been significant progress in achieving the right to education, the Indonesian government remains Indonesia's most popular citizen" (Manan, 2015).There are still many aspects that need to be prepared, maintained, and also improved as this ofcourse not an easy and fast task."There are examples of good education being provided in special schools in Indonesia and some regions are working to develop more inclusive approaches to education across all stages but there is still much to do.Enrolment of students with additional support needs in senior secondary schools remains very low"(OECD/Asian Development Bank, 2015) Advances in Social Science, Education and Humanities Research (ASSEHR), volume 141 Indonesia toward Inclusive Education on August 2011, and up to year 2015, 12 out of 34 provinces declared as the implementors province of inclusive education.The national policy of inclusive education in Indonesia is the Regulation of National Ministry of Education Number 70 Year 2009 (called as Permendiknas 70/2009).This is in line with the Law 20/2003 on the National Education System mandating the concept of "compulsory basic education" for all citizen.
example of the district government regulation on Inclusive reulation is theYogyakarta Municipal Regulation Number 47 Year 2008.Another example is the Regulation of the Governor of Aceh Number 92 year 2012 on the implementation of inclusive education in line with the Qonun of Aceh Governor Number 5 year 2008 on the implementation of education.The Regent of Aceh Besar also issued the Qonun of Aceh Besar Regent Number 6 year 2010 on the management of the implementation of education.

Table 1 .
The Feature of Indonesian Education System

Table 3 .
Definition of Inclusion