The Role of Coherence in Strengthening Community Accountability for Remote Schools in Indonesia

Incoherence in accountability relationships, or the lack of alignment between the various components of a specific education system, can hamper the quality of education. Such incoherence can be a particular challenge in resource constrained, remote villages where teachers tend to have higher educational capital and social status than the parents and communities whom they serve. We analyzed quantitative and qualitative data from a randomized controlled trial of a social accountability mechanism (SAM) for primary schools in remote Indonesian villages. The intervention had three treatment groups, all of which included the SAM, that engaged village-level stakeholders in a consensus-building process that led to joint service agreements for supporting the learning process. Prior analyses have found that all three treatment groups significantly improved student learning, but the treatment group combining the SAM with teacher performance pay based on camera-monitored teacher attendance led to much larger gains than the SAM-only treatment group or the treatment group combining the SAM with teacher performance pay based on a community-evaluated scorecard. Drawing on a range of quantitative data sources across all treatment group schools (process monitoring, survey, and service agreement indicators) and qualitative data from nine case study schools (interviews and focus group discussions), we show first that the student learning gains across all three treatment groups were accompanied by increases in both the coherence of the accountability relationships between village-level stakeholders and the degree to which these relationships were oriented toward the purpose of cultivating learning. We further show that the treatment group combining the SAM with camera monitored teacher attendance led to greater improvements in the coherence of accountability relationships than the other treatment groups, because the cameras improved both the technical capacity and the social legitimacy of community members to hold teachers accountable. This coherence-focused, relational explanation for the relative effectiveness of the treatment groups has more explanatory power than alternative explanations that focus narrowly on information quality or incentive structure. Our analysis reinforces arguments for ensuring that accountability structures are coherent with the local context, including local social structures and power dynamics.