Indonesia’s New Academic Tests Spark Debate Over Education Reform

In a bold move to overhaul Indonesia’s education system, the Elementary and Secondary Education Ministry has announced the introduction of new Academic Ability Tests (TKA) for high school students, set to commence in November 2025. Replacing the existing National Assessment (AN), the TKA aims to evaluate individual student performance in core subjects such as mathematics, English, and Indonesian, alongside two elective subjects. While the policy is framed as a progressive step towards aligning academic standards with national benchmarks, it has sparked a heated debate among educators, policy experts, and teachers’ associations, who warn of potential pitfalls in its rushed implementation.

The initiative, spearheaded by Schools Minister Abdul Mu’ti since taking office in October 2024, is part of a broader wave of reforms targeting the education sector. Unlike the AN, introduced in 2021 by Mu’ti’s predecessor Nadiem Makarim during the COVID-19 pandemic, which assessed school performance through sampled testing, the TKA focuses on individual student achievement. According to Toni Toharuddin, acting head of the Educational Standards, Curriculum and Assessment Agency (BSKAP), the tests will not be mandatory for grade progression but will play a significant role in university admissions through the academic achievement pathway, in collaboration with the Council of Rectors for Indonesian State Universities (MRPTN). Plans are also underway to extend the TKA to elementary and middle school admissions from 2026.

Yet, as Indonesia grapples with deep-rooted disparities in educational access and quality, the policy has raised concerns about equity, preparedness, and the broader implications of standardized testing on students’ learning experiences. Critics argue that without meticulous planning and adequate infrastructure, the TKA risks exacerbating existing inequalities rather than addressing them.

A Shift in Educational Assessment

The decision to replace the National Assessment with the TKA stems from mixed feedback on the former system. Launched during a time of global upheaval, the AN was hailed by some as an innovative approach to gauging school performance through literacy and numeracy tests conducted on a sample basis. However, detractors claimed it failed to capture individual student capabilities and, in some cases, diminished motivation to learn. The TKA, by contrast, seeks to provide a more granular evaluation, testing each student against a national standard.

Second Deputy Elementary and Secondary Education Minister Atip Latipulhayat described the new tests as a tool for self-assessment, offering students insight into their academic strengths and potential. “This provides an opportunity for all students to conduct a kind of self-assessment of their academic abilities,” Latipulhayat told Tempo on 5 March 2025. Additionally, the TKA is set to complement the recently introduced School and University Admission System (SPMB), which prioritizes academic merit over the previous zone-based admission policy (PPDB). The SPMB, unveiled by Mu’ti in early 2025, aims to standardize admissions by allocating more seats based on academic performance rather than geographic zoning or inconsistent school report cards.

Nisa Felicia, executive director of the Center for Education and Policy Studies (PSPK), supports the integration of TKA with admission pathways, noting that it addresses the variability in school-issued report cards. “At the moment, admission through academic merit is based on student report cards. Since these are provided by schools, they have different standards,” she explained. However, Felicia cautioned that standardized tests like the TKA could have unintended consequences on students’ cognitive development if not balanced with character-building and competency-focused education.

Concerns Over Implementation and Equity

While the policy’s intent to refine academic evaluation is clear, the timeline for its rollout—less than eight months from the announcement—has drawn sharp criticism. Iman Zanatul Haeri of the Indonesian Teachers Association (P2G) highlighted the risk of inadequate preparation, warning that teachers and students might be caught off guard. “At the end of the day, teachers are the ones being asked [by students] about standardized tests, so the government must have listened to our aspirations,” he said. Haeri urged the ministry to ensure thorough communication and technical readiness before the November rollout.

A significant concern is the potential for the TKA to deepen educational disparities across Indonesia’s vast and diverse archipelago. With over 17,000 islands and varying levels of infrastructure, schools in underdeveloped regions often lack the resources—such as reliable internet connectivity and modern facilities—needed to administer standardized tests effectively. Haeri emphasized the need for safeguards to prevent test leaks and ensure equitable access, cautioning that without such measures, “the TKA could instead be another discriminatory policy that widens the education gap between schools in the country.”

This concern resonates with Indonesia’s historical challenges in achieving educational equity. Rural and remote areas, particularly in eastern provinces like Maluku and West Papua, frequently lag behind urban centers such as Jakarta and Java in terms of funding, teacher training, and infrastructure. If the TKA is implemented without addressing these structural inequalities, it may inadvertently favor students in better-resourced areas, further entrenching the divide.

Broader Implications of Standardized Testing

Beyond logistical challenges, the introduction of the TKA reignites a global debate over the efficacy and ethics of standardized testing. Critics like Nisa Felicia argue that such assessments often prioritize measurable outcomes over holistic learning. “Standardized tests could harm students’ cognitive learning. As such, schools must continue to pay attention to developing students’ characters and competencies, which are far more complex and cannot be measured solely by standardized tests like the TKA,” she noted.

This perspective aligns with broader educational research suggesting that high-stakes testing can narrow curricula, encourage “teaching to the test,” and increase stress among students. In Indonesia, where cultural and linguistic diversity shapes learning environments, a one-size-fits-all approach risks sidelining non-academic skills and local knowledge systems that are critical to students’ development.

Moreover, the TKA’s role in university and school admissions raises questions about accessibility. While the test is not mandatory for grade progression, its integration into admission pathways could create implicit pressure for students to participate, particularly for those aspiring to competitive institutions. If confirmed, this could disproportionately affect students from disadvantaged backgrounds who may lack access to preparatory resources or tutoring, though no evidence currently suggests the ministry intends to make the test a de facto requirement.

Political Context of Education Reform

The TKA initiative must also be viewed through a political lens. Education reform has long been a contentious issue in Indonesia, reflecting broader tensions between centralization and regional autonomy. Minister Mu’ti’s push for rapid policy changes since assuming office signals a desire to leave a distinct mark on the sector, differentiating his tenure from that of Nadiem Makarim, whose AN policy faced criticism for its perceived inadequacies. Yet, the speed of these reforms, including the TKA and SPMB, suggests a potential trade-off between ambition and feasibility.

Mu’ti’s reforms unfold against the backdrop of Indonesia’s democratic evolution and growing public demand for accountability in governance. Education, as a cornerstone of national development, often becomes a battleground for political narratives, with successive administrations seeking to address systemic challenges while navigating public opinion. If the TKA succeeds in providing a fair and accurate measure of student ability, it could bolster Mu’ti’s reputation as a reformist leader. However, if implementation falters—due to logistical failures or perceived inequity—the policy may fuel public discontent, particularly among educators and parents in underserved regions.

Looking Ahead: Balancing Ambition with Caution

As November approaches, the Indonesian government faces the daunting task of ensuring the TKA’s rollout is both effective and equitable. This will require not only robust communication with schools and teachers but also targeted investments in infrastructure, particularly in remote areas. Teacher training programs, digital access initiatives, and transparent guidelines on test administration could mitigate some of the concerns raised by stakeholders.

Furthermore, the ministry must engage with critics to refine the policy, ensuring that the TKA complements rather than overshadows other aspects of education. Striking a balance between standardized assessment and holistic learning will be crucial to avoiding the pitfalls of over-reliance on testing, as seen in other countries with similar systems.

While the long-term impact of the TKA remains uncertain, its introduction marks a pivotal moment in Indonesia’s education landscape. If handled with care, it could pave the way for a more equitable and merit-based system. However, without addressing the structural and cultural challenges inherent in such a diverse nation, the policy risks becoming a well-intentioned but flawed experiment. For now, educators, students, and policymakers alike wait to see whether this reform will bridge gaps or widen them—a question that will only be answered with time and rigorous evaluation.