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ESSAY - Membangun Kembali Kebijakan Ujian Nasional
The crisis now facing the nation (Indonesia) stems from an accumulation of inappropriate or wrong political decisions generated in the past
Sumber kekacauan pendidikan kita kebanyakan dari politik pendidikan pemerintah. Selama ini, kebijakan pendidikan kita bercirikan trial and error, hit and run, dan ”proyekisme” (yang dipelesetkan kick and rush, cekik dan peras). Urusan pendidikan sering digampangkan, sepertinya kebanyakan orang merasa paham dan mampu memberi solusi yang benar tanpa perlu studi dan teori. Pendidikan diselenggarakan berdasarkan impulse sesaat para penguasa sehingga ketika pejabat bertutur pentingnya nilai-nilai kejuangan 45, lahirlah Pendidikan Sejarah Perjuangan Bangsa, saat pemimpin negeri kebanyakan alumni Jerman, muncul link and match, dan manakala Menko Kesra berceloteh tentang nilai katrol, terbitlah UAN (sekarang UN)
Dewasa ini kita negara dan bangsa kita tercinta ini tidak henti-hentinya didera oleh berbagai macam krisis. Maka lahirlah istilah yang dikenal dengan krisis multidimensional. Memang, di antara krisis itu ada yang terjadi karena faktor alamiah, seperti bencana alam. Tetapi yang banyak terjadi sebenarnya karena faktormanusia. Krisis pendidikan termasuk di dalamnya. Salah satu krisis itu adalah kebijakan ujian nasional (UN).
Lalu, mengapa krisis itu seperti tidak kunjung usai? Ada masalah tentu ada jalan ke Roma yang harus dicari. Faktor penyebab krisis dapat ditinjau dari berbagai dimensi. Dari sudut pandang manajemen, sebagai contoh, secara sederhana krisis tersebut dapat terjadi karena kekurangan dalam proses perumusan kebijakan dan programnya, kekeliruan dalam proses perencanaan, penyimpangan dalam pelaksanaan, kelemahan dalam penentuan anggaran, atau bahkan pada saat pengawasan dan pelaporan.
Tulisan ini akan mencoba menganalisis faktor-faktor penyebab khusus dari sudut pandang proses perumusan kebijakan. Analisis ini berangkat dari pendapat Muchtar Buchori yang menyatakan dengan tegas bahwa “The crisis now facing the nation (Indonesia) stems from an accumulation of inappropriate or wrong political decisions generated in the past”. Dalam hal ini termasuk krisis dalam dunia pendidikan, wabil khusus dalam hal kebijakan ujian nasional (UN). Dalam hal kebijakan pendidikan ini, pemerintah ternyata telah kalah telak dua kosong dengan pihaksparing partner-nya. Pertama, pemerintah kalah dengan PGRI dalam hal anggaran pendidikan 20%. Kedua, pemerintah juga dikalahkan oleh TEKUN (Tim Advikasi Ujian Nasional) dalam hal UN. Okelah. Pemerintah sebenarnya harus menerima dua ’kekalahan’ tersebut dengan lapang dada. Dalam era desentralisasi dan otonomi pendidikan, rakyat memiliki kewenangan dalam proses perumusan kebijakan nasional Lalu, apakah kebijakan yang diambil pemerintah selama ini memang tidak atau kurang tepat? Ataukah dengan demikian keputusan politik yang diambil pemerintah memang tidak atau kurang memperhatikan aspirasi rakyat? Kalau demikian, bagaimana langkah yang harus ditempuh pemerintah agar keputusan politik yang diambil benar-benar sejalan dengan aspirasi dan kebutuhan rakyat?
Lahirnya Sebuah Kebijakan
Kebijakan seharusna dipandang sebagai kesepakatan publik yang diformulasikan dari hasil pemikiran dan kerja bersama antara pemerintah dengan para pemangku kepentingan (stakeholders). Sebuah kebijakan seharusnya bukan hanya lahir dari pendapat atau celoteh seseorang. Juga bukan hanya dari pendapat seorang pemimpin yang sedang berkuasa. Seorang pemimpin yang sedang berkuasa memang menjadipemegang amanat rakyat yang dipimpinnya. Oleh karena itu, seharusnya pendapat pemimpin yang cerdas boleh jadi akan mewarnai kebijakan yang akan diambilnya. Tetapi yang pasti kebijakan itu harus sejalan dengan kepentingan rakyat. Itulah sebabnya peraturan pemerintah perlu disosialisasikan kepada masyarakat dalam kegiatan uji publik. Kebijakan harus lahir dari, oleh, dan untuk rakyat. Sama dengan kekuasaan lahir dari, oleh, dan untuk rakyat. Itulah makna dan hakikat demokrasi yang sebenarnya.
Melahirkan Kembali Kebijakan
Kembali ke soal UN, jika menurut keputusan pengadilan pemerintah harus mengkaji ulang kebijakan UN tersebut, maka tidak ada salahnya jika pemerintah dapat melakukan langkah perumusan ulang kebijakan tersebut secara komprehensif. Ini harus dimaknai sebagai momentum yang sangat tepat untuk melakukan pelurusan kebijakan itu. Citra pemerintah sama sekali tidak akan jatuh hanya karena harus meluruskan kembali kebijakannya. Justru pemerintah harus meluruskan kembali kebijakan tersebut secara komprehensif sesuai dengan amanat rakyat. Bukan setengah-setengah, tetapi menghasilkan kebijakan nasional yang utuh tentang sistem penilaian pendidikan.
Langkah-langkah yang dapat ditempuh antara lain adalah sebagai berikut:
Pertama, bentuk Tim Perumusan Kebijakan Nasional Tentang Penilaian Pendidikan. Tim ini bisa dibentuk oleh Depdiknas, yang BSNP menjadi leading sector-nya. Dengan demikian, BSNP benar-benar menjadi lebih fungsional. Anggotanya berasal dari elemen masyarakat pendidikan, termasuk juga DPR Komisi Pendidikan, para pakar pendidikan, organisasi profesi independen seperti PGRI, ISPI, LSM pendidikan dan sebagainya.
Kedua, sesuai jangka waktu yang ditentukan, tim tersebut akan melakuan evaluasi dan kajian terhadap semua kebijakan yang terkait dengan penilaian pendidikan di negeri ini, melakukan studi banding ke negara lain untuk mencari model yang sesuai dengan Indonesia, dan kemudian merumuskannya sesuai dengan ketentuan perundang-undangan yang berlaku, serta melaporkan hasil kerjanya kepada pemerintah. Kita mengetahui bahwa beberapa negara menggunakan sistem yang berbeda-beda. Misalnya, konon Finlandia tidak menggunakan sistem ujian nasional. Evaluasi pendidikan lebih diserahkan kepada guru, karena para gurulah yang lebih mengetahui tentang hasil belajar peserta didik. Tidak adil jika hasil penilaian sehari akan digunakan untuk menentukan kelulusan peserta didik. Ada kata-kata bijak anekdot yang dapat menjadi pemikiran kita dalam hal mengevaluasi kembali kebjakan nasional ini. Bunyinya begini. “Human brain is the most outstanding object in world. It functions 24 hours a day, 365 days a year. It functions right from the time we are born, and stop only when we enter the examination hall”. Artinya, otak manusia adalah benda yang luar biasa di dunia. Fungsinya 24 jam sehar, 365 hari setahun. Fungsinya dari saat kita lahir, dan berhenti ketika kita masuk ruang ujian. Berdasarkan kata-kata bijak yang senis ini, akankah kita akan menghentikan kehebatan fungsi otak tersebut hanya sampai di ruang ujian?
Hasil dari kegiatan kajian tersebut akan menghasilkan butir-butir rekomendasi yang harus dilaksanakan oleh pemerintah. Dalam kajian tersebut tidak tertutup akan menghasilkan reorganisasi dalam bidang penilaian pendidikan, misalnya meningkatkan status Puspendik (Pusat Penilaian Pendidikan) yang ada di bawah Balitbang (Badan Penelitian dan Pengembangan) menjadi badan yang lebih besar dan kuat yang akan diberi tugas untuk melaksanakan penilaian pendidikan. Dalam hal ini, BSNP memberikan pertimbangan dalam hal standar pendidikan, sedang badan baru itu sebagai pelaksananya, yakni menjadi badan independen yang berada di bawah Mendikbud.
Secara rinci kajian yang akan dilakukan tersebut dapat berupa substansi sebagai berikut:
1. Pelaksana tugas penilaian, seperti penilaian formatif, penilaian sumatif, dan ujian akhir, serta berbagai jenis penilaian lainnya, termasuk hubungan antara semua jenis tersebut, mulai dari penilaian di jenjang pendidikan dasar, menengah, dan perguruan tinggi.
2. Penataan kembali lembaga dan organisasi pelaksana penilaian, seperti Puspendik, BSNP, dan semua Ditjen Teknis terkait. Pemberian kewenangan kepada Puspendik untuk merencanakan dan melaksanakan penilaian pendidikan perlu mendapatkan perhatian dan pertimbangan.
3. Pengembangan model-model ujian akhir, penentuan kelulusan atau hanya tamat, sampai dengan kemungkinan menggunakan ujian akhir online (online assessment) perlu diantisipasi dalam era teknologi informasi.
4. Bentuk-bentuk laporan pendidikan, seperti rapor, sistem peringkat, sistem pemberian skor atau nilai (marking). Sebagai contoh, di Malaysia menggunakan nilai 1 sampai dengan 9 untuk menunjukkan tingkat pencapaian kompetensi siswa. Nilai 1 sampai 3 adalah nilai yang tertinggi, sedang nilai 9 adalah gagal (fail) untuk mata pelajaran yang bersangkutan. Juga apakah masih perlu menggunakan sistem pemberian skor kuantitatif ataukah kualitatif. Rapor yang bagaimana yang sebaiknya agar guru juga tidak mengalami kesulitan dalam membuat laporan pendidikan kepada orangtua siswa. Selama ini guru menjadi korban adanya perubahan yang terlalu sering dalam pengisian rapor. Pekerjaan utama guru adalah mengajar, bukan dalam hal kegiatan administrasi sekolah. Guru SD menjadi lebih berat karena di lembaga ini memang belum ada staf administrasi sekolah. Sementara di MI ternyata sudah ada staf administrasi.
5. Juga soal pembuatan ijazah atau sertifikat. Apakah ijazah harus didesign secara luks seperti yang sekarang. Apakah ijazah yang seperti itu tidak termasuk pemborosan dana. Bukankah yang penting nilai yang ada di dalamnya? Perlu tanda lulus ataukah hanya pencantuman nilai sebagaimana adanya. Karena untuk penerimaan pegawai, melanjutkan ke perguruan tinggi, nilai-nilai itu kurang menjadi kriteria yang berarti. Biarlah nilai-nilai itu akan berbicara sendiri untuk semua kepentingan itu.
6. Dengan demikian, apakah diperlukan adanya standar kelulusan sebagaimana telah ditetapkan dalam PP tentang Standar Nasional Pendidikan? Ataukah standar itu akan menjadi acuan bagi para penanggung jawab penilaian pendidikan kelak?
7. Apakah nilai ujian akhir di jenjang pendidikan menengah akan menjadi kriteria untuk masuk ke perguruan tinggi sebagaimana di Malaysia? Ataukah tetap untuk masuk ke perguruan tinggi tetap menggunakan proses ujian masuk ke perguruan tinggi?
8. Dan masih banyak yang lainnya yang perlu dikaji secara mendalam.
Ketiga, selama kajian tersebut berlangsung, dan oleh karena itu belum menemukan sistem yang diharapkan, maka sistem transisional dapat diberlakukan, atau sistem lama masih dapat diberlakukan dengan perubahan-perubahan yang diperlukan.
Keempat, proses kajian dan evaluasi tersebut akan menghasilkan naskah akademik dan rekomendasi yang akan menjadi pegangan utama pemerintah untuk merumuskan dalam bentuk Peraturan Pemerintah (PP). Proses kajian dan evaluasi seperti itu di Malaysia telah menghasilkan apa yang disebut sebagai Laporan atauPenyata, misalnya (1) Laporan L.J. Bernes Tahun 1946, (2) Laporan Fenn-Wu Tahun 1952, (3) Laporan Razak Tahun 1957, (4) Laporan Abdul Rahman Talib 1959, (5) Laporan Aminudin Baki Tahun 1965, dan seterusnya. Pelaksanaan semua kebijakan yang diambil secara periodik harus dilakukan kajian dan evaluasi. Hasil kajian dan evaluasi tersebut akan menjadi bahan pertimbangan penting untuk proses perumusan kebijakan berikutnya.
Kelima, pemerintah mengeluarkan PP atau setidaknya Peraturan Menteri tentang sistem penilaian pendidikan tersebut, untuk kemudian dilaksanakan oleh badan baru tersebut. PP ini secara komprehensif akan mengatur tentang hal-hal sampai yang terkecil, misalnya masih perlukan sistem ranking, soal rapor, soal sistem kredit, soal kenaikan ekspres, dan sebainya. Setelah PP dapat diterbitkan maka kebijakan itu harus dilaksanakan secara konsekuen dan konsisten.
Tidak mudah memang melakukan perubahan. Tidak ada yang tidak berubah di dunia ini, kecuali kata perubahan itu sendiri. Mungkinkah proses kajian seperti itu akan berjalan alot. Tetapi pemerintah harus memberikan kepercayaan kepada tim agar dapat melakukan kegiatannya secara optimal. Dengan cara demikian, maka upaya membangun kembali kebijakan ujian nasional akan berjalan sesuai dengan harapan dan aspirasi masyarakat, serta dapat menghasilkan kebijakan yang tepat bagi perkembangan bangsa dan negara ini di masa mendatang. Amin.
Marziki, Shahril @ Chairil dan Habib Mat Som. 1999. Isu Pendidikan di Malaysia, Sorotan dan Cabaran. Kuala Lumpur: Utusan Publication & Distributors SDN BHD.
Mohammad Abudzen. 2006. Ujian Nasional dan Politik Pendidikan.http://perpustakaan. bappenas.go.id
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