MODEL OF INCLUSIVE EDUCATION IN STRENGTHENING AFFIRMATIVE POLICIES FOR INDIGENOUS PAPUANS (OAP)

High illiteracy rates and a low average school year has contributed for Papua Province to had the lowest Human Development Index (IPM) in Indonesia. The educational achievement should not only be seen through statistical figures. The challenge of providing education services for Indigenous Papuans (OAP), especially in the central highlands area, should consider the socio-demographic context, geography, accessibility, availability of transportation, and the culture of OAP, along with local government capacity in managing education services. The 2001 Special Autonomy Law mandated a proportion of the allocation of education funds at 30%. However, its implementation for up to two decades has not been able to contribute to a significant increase in human resources. Therefore, the issue of education in Papua is not only a matter of funds. Implementation standards for education and teaching materials must be able to adapt to their needs, answer community’s problems, be in accordance with natural conditions, and not be urban biased. This study will explain three models of the development of the Papuan contextual education model implemented by education practitioners, a foundation, and local government with NGOs in several districts in Papua Province, which have become good practices for implementing Papuan contextual education for OAP.


Introduction
This article aims to enrich the discussion about affirmative policies in the field of education, especially for people in isolated remote areas or the central highlands of able to overcome the challenges of the quality of human resources in Papua (Prabowo et al., 2020). This is partly due to the not yet optimal utilization of the special autonomy policy space for the development of educational models contextual aspects of Papua as well as increasing government capacity to provide education that is appropriate to the socio-demographic, geographical and cultural context of the Orang Asli Papua (OAP) (Efendi et al, 2017). Nonetheless, there are several examples of successful development of contextual education models as practiced by several schools as well as models developed by education practitioners, foundations and local governments in several districts in Papua Province. So far, the implementation of Papuan contextual education has also been hampered by Law Number 20 of 2003 concerning the National Education System which standardizes the implementation of education through educational policy standards throughout Indonesia (Widodo, 2016).
In addition, the implementation of national education is still focused on the allocation of education funds, with controls over the quality of budget spending that are still weak. Through a case analysis of the Papuan contextual education model that is developed in an inclusive manner, this article shows that, qualitatively, the level of success in reducing illiteracy and increasing school enrollment is quite high. This Papuan contextual education model can at least strengthen the special autonomy policy in the education sector.
One of the challenges in providing education services in Papua is geographical conditions. The topographical conditions of the Province of Papua, which vary greatly in the form of mountains, highlands, sloping and hilly plains, as well as the conditions of dispersed population settlements, make connectivity between settlement centers in the provision of education services difficult to reach (Campbell et al., 2014). As an illustration, the central mountainous area has many isolated and remote areas with an altitude of 500 to 4500 meters above sea level, while areas inhabited by residents are at an altitude of 2500 meters above sea level (Maurer et al., 2020). Qualitatively, residential areas are inseparable from past history when tribal wars, many indigenous Papuans choose to live in the highlands so they can live monitor enemies. In addition, there are also many indigenous Papuans who choose to live in isolated areas so they are not easy to find. Now, the distribution of settlements cannot be separated from customary land ownership which is not easily transferable, so that residents cannot necessarily be mobilized to other areas. Land has a value as a mother with a strong emotional attachment to ethnicity. For this reason, the implementation of the formal  (Jackson, 2021). So, the formal school placement model by gathering students in class, at certain hours, in the district capital can so it is not only difficult for students but also teachers. So far, national education policies have always prioritized educational standards that are biased towards Java, as a result, remote, remote and underdeveloped (3T) regions have experienced difficulties in implementing educational programs and activities that comply with national standards. These areas require an approach to implementing education that is different from the standards at the national level.
The condition of the disconnection of the population's access to education services in one region, province or district, can be seen through the average length of schooling in that area. The following is an overview of the average length of schooling in the provinces of Papua and West Papua in 2016, which are still not much different until now.  If seen from the graph in Figure 1.2, the Papua Province HDI, namely 58.05 in 2016, is the lowest in Indonesia and below the national HDI, which is 70.18.
Meanwhile, only Jayapura City, Jayapura Regency, Mimika Regency, Manokwari Regency and Sorong City have an HDI above the National HDI average (Wahyudin et al., 2021). This is because these areas are relatively developed areas, have good regional accessibility, and interaction with people outside Papua is also high, through trade and other activities. Conversely, isolated areas have a small HDI rate. When viewed between districts, HDI results also show high inequality.
In relation to this background, this study takes a position on an inclusive education model that is appropriate to the locality of Indigenous Papuans as an alternative model for implementing basic education in Papua. Several models of inclusive education that are considered successful are practiced in Papua, for example the flagship boarding school in Lanny Jaya District, the boarding school by the Pesat Foundation in Nabire District, and the John Rahail village school in Sarmi District have shown benefits for the community in the area because it uses an appropriate locality approach. This study tries to explore the experience of implementing these models, including success stories of model implementation, factors that support model implementation, actors who play a role and challenges in model implementation.

Research Methodoloy
This study is a descriptive analytical study using a qualitative approach and literature study. A qualitative approach is used to explain data and information that are subjective and cannot be measured numerically. This qualitative approach is used to explore and analyze data and information related to an inclusive education model that is appropriate to the context and needs of local communities in Papua. Data and information were obtained through primary data collection using direct field observation methods, in-depth interviews with selected key informants and focus group discussions Direct observation at the research location was used to see and experience firsthand alternative inclusive education practices developed in the Papua Province region.
Meanwhile, in-depth interviews and FGDs were used to obtain perspectives from relevant stakeholders related to the implementation of inclusive education in Papua Province. Target informants for in-depth interviews are school principals and teachers/teaching staff who manage inclusive school models for local Papuan communities. The FGD activities were carried out with representatives of regional agencies related to the implementation of inclusive education in Papua Province.
Next, a Literature Study is carried out by analyzing quantitative data used to explain phenomena related to educational attainment in Papua Province which can be This writing is done to describe the variety of education implementation in the local realm, which is focused on contextual education models that are used to answer the basic problems and needs of communities that can be different even in the same province, especially Papua where each customary territory has its own uniqueness.
terms of language, ways of survival, social systems, as well as local economic development potential for their communities. This paper describes several models of implementing Papuan contextual education that have been successfully implemented by education practitioners, local governments, foundations, as well as collaborations among stakeholders in several districts in Papua. The education in question is limited to formal and non-formal basic education that focuses on teaching literacy, and increasing school participation.

Results and Discussion
Investment in education is something that is really needed in Papua at this time.
Education and health are tools and goals of development. Viewed from the classic model, developing countries like Indonesia, the problem of poverty is not caused by a lack of demand, but because of the low quality of human capital, increasing national production cannot depend on the majority of Indonesian people, but must depend on production produced by a small number of Indonesian people. , which already has a high quality of human capital (Ananta, 1986). Papua's economic contribution to Indonesia is largely supported by economic activities that exploit natural resources. If the quality of human capital in Papua is not improved as an investment to improve the quality of human capital, then Papua will be left behind and unable to contribute to the national economy or grow as an independent province. So far, the economic capital that has developed in Papua has gone through investment of large amounts of capital that does not involve much improvement in the quality of Papua's own human capital.
Meanwhile, the government has built a lot of basic infrastructure to boost connectivity, but the development of human resources has not received much attention.
According to Paulo Freire in Elias (1974), in education for the oppressed it is explained that education can generate false consciousness that has been formed by the social system. This awareness will give birth to his role in society. Education can trigger political awareness to be able to see injustice and inequality. In line with Freire, Dewey also sees learning as an instrument of social and cultural change (Elias, 1974 are still major challenges in the management aspects of education management which are not yet optimal.
The budget allocation for the development of the education sector is large within the framework of the special autonomy policy, it turns out not aligned with the achievements of various efforts to increase human resources in Papua Province.
Although, the Papua Province HDI growth rate from 2014-2016 experienced an increase of 2.29 percent which exceeded the national HDI growth rate of 1.86 percent. However, the Papua Province HDI rating is still the lowest when compared to other provinces in Indonesia (Ministry of National Development Planning/Bappenas, 2017). This is also reflected in the various indicators of educational attainment in Papua Province which are still relatively low (see Table 1). When the expected length of schooling reaches 10.23 years, it means that on average 7 year old children who enter formal education in 2016 have the opportunity to go to school for 10.23 years up to high school. Assuming that the teaching and learning process runs normally, such as the availability of teachers, teaching materials, and infrastructure, as well as high levels of student and teacher attendance. However, the average length of schooling in Papua Province is only 6.15 years, meaning that most school-age children only receive education at the elementary school level. The situation is even more apprehensive when you look at the average length of schooling in districts in the central highlands area, which is only around 0.70-4.89 years. The literacy rate in Papua Province in 2013 was 75.92 percent, and for 8 districts in the central highlands it was below 37 percent (Bappenas, 2017). Investment in education is an effort to maximize the benefits of quality human capital. Formal education is the way government to increase capacity and skills in improving the quality of human capital and/or achieving a productive workforce. These standards can be applied easily in urban areas that have good regional accessibility with sufficient resources available, such as Jakarta. However, in Papua the focus of the problem has not yet been on improving the quality of the implementation of education development but is still focused on providing basic education services. These national education standards cannot be applied easily.  (Bappenas, 2017). This indicates that the distribution of the budget is still uneven, especially for remote and isolated areas which require more attention, and there is no specific mechanism to help students with existing geographical difficulties. In the end, to improve human resources and the next generation who are able to behave, educational services must be provided. The ability to read, write, count is the main life skill that must be possessed before developing other abilities.
Mollet's study (2007) shows that one of the challenges in carrying out investment in education in Papua is managerial factors. These managerial factors include the following three things: (i) first, the local government (Pemda) has difficulties in making appropriate education programs, that the implementation of special autonomy is like shock therapy. result, corruption and collusion occur in local government and legislative bodies. In reality, the budget allocation only accounts for less than 14 percent, and is focused on infrastructure spending which is easily corrupted by the regional government, DPR, and entrepreneurs together. Collusion took the form of exchange or capacity building programs whose participation was dominated by government staff but which were not utilized properly in the study locations. The following staff are at the highest pay levels and nearing retirement age. In other words, the benefits of education are very small; (ii) second, monitoring or visits from education supervisors, both central and regional, are very limited, which can be up to once every 6 months (Agustinus, 2013); and (iii) district regional governments have not been able to manage basic education, while this must be done as a consequence of the implementation of Law Number 23 of 2014 regarding the authority to administer basic education and early childhood education early childhood education (PAUD) at the district/city level. When the provincial government tries to take over, it will collide with regulations. Regional apparatus at the district level are still not running optimally, because several regencies, especially in the central highlands, are districts that have just blossomed from the main regency, so that the number of regional apparatuses is inadequate or their managerial capabilities have not been formed.
With the constraints on implementing these national education standards, an approach that is built on locality factors can be an alternative for inclusive education for the community. There are several examples of successful school models that are Discussion on the implementation experience of each educational model Papua contextual will be explained in detail as follows.

Featured Boarding Schools in Lanny Jaya District
The flagship boarding school in Lanny Jaya Regency is an example of regional innovation in the form of collaboration between the Regional Government of Lanny Kaya Regency and the Surya Institute. Lanny Jaya has three boarding schools initiated by the Regional Government as an alternative solution to get around geographical constraints in their area. Through boarding schools, students do not need to travel across tough geographical terrain to be able to go to school every day. stakeholders to find out social problems that hindered the implementation of teaching and learning activities. The results of discussions between the Education Office and stakeholders related to education succeeded in identifying several social challenges in cultivating in the implementation of teaching and learning activities in Lanny Jaya, including the problem of student absences from school for months because students have to attend mourning ceremonies or traditional ceremonies, security disturbances that stop teaching and learning activities in schools, and wars between tribes that prevent teachers from attending schools. The Government of Lanny Jaya Regency attempted to solve this problem in a customary manner. The role of community leaders actors has also become one of the findings of the successful development of contextual education models in the Lanny Jaya area. Community leaders such as the Regional Secretary (Sekda) who having a leadership spirit and being a native person who can speak Lanny facilitates negotiations and cooperation with religious and community leaders in the supervision and smooth running of teaching and learning activities. The regional secretary's ability to foster good relations with the provincial government and the Ministry of Education and Culture makes education connected and assistance well channeled, including technological assistance from Korean companies adapted to local needs, such as a tablet computer device that can detect distances between mountains without using a signal or electricity. Procurement of contract teachers and volunteers was carried out on a large scale to overcome the shortage of teachers. The Regional Secretary and local government officials exercise very strict supervision in the process of teaching and learning activities, for example instructions to the village head regarding delaying the provision of village funds if there are students who do not attend school in the village, appeals to church leaders to encourage their congregations to want to go to school , teachers both with the status of civil servants and contract workers who do not behave well will be dismissed, and cooperation with the community to take an active role in monitoring if there are school-age children hanging around at school time.
To ensure the presence and presence of teachers at school, the Regional Secretary ensures that teachers are paid regularly and given housing facilities, even though they are simple. In addition, teachers are also provided with facilities to meet recreational needs (usually recreation to Wamena). teacher who Those from outside Papua are also allowed to take permission to return home. The local government also always prioritizes the safety and health aspects of teachers.
Efforts to eradicate illiteracy carried out by the local government are not only for school-age children, but also target adults. One of the efforts made is that people who wish to meet with the Regional Secretary or officials authorized to manage other public services are required to read or learn to read, before entering a government office.
Through these various efforts, within 6 months, the number of illiterates in Lanny Jaya decreased drastically. Lanny Jaya is one of the districts with the highest HDI growth rate of 4.31 percent. Collaboration with evangelists, traditional leaders, and village heads is considered the key to success (Bappenas, 2016). The Pesat Foundation School is inclusive by not holding admission selection. In the process, the school, assisted by volunteers, will map areas that have the potential for school-age children who need education. This school is also affirmative by prioritizing native Papuan children, because Nabire is also a hub area and demographically has many immigrants. Implementation of educational activities is carried out by making hostels from kindergarten to high school for native Papuan children who cannot be put together with those outside the hostel. Teachers live together with students in dormitories, to carry out guidance and supervision, teaching competencies vary from bachelor's degree to doctorate, so that the quality of education implementation can be well controlled.

The Pesat Foundation Boarding School in Nabire Regency
Cognitively, graduates of this school are able to continue their education at well-known universities on the island of Java, with the help of a network of foundations that have been built so far. This network is not only for channeling students who want to study in Java, but also for getting committed teaching staff and volunteers from various regions to teach in schools. The impact of the learning system is clearly visible, namely the students' self-confidence is very high and their communication skills and attitudes are better when compared to native Papuan students who attend schools general.

Village School in Sarmi District
The community-based village school founded by John Rahail is located in the East Coast District, Sarmi Regency, which is eight hours by land from the capital of Papua Province. The local approach used makes children aged 3-5 years eager to learn and more confident to learn new things around the community (learning culture). This school was created to bridge students' basic abilities before entering formal schools which are considered rigid with an education curriculum that tends to be city-biased.

Conclusions and Recommendations
Education is a basic need of society. Education will also determine the attitude of every individual in society in playing its role in the community, therefore education can create a self-concept. In addition, education is also human capital. Education is the motor for increasing human resources and has output expectations for development and economic growth, and it is hoped that in its implementation it will not interfere with the social meaning of individual social life. For this reason, contextual education is needed with educational content and methods that suit the needs of local communities.
Strengthening education policy within the framework of the special autonomy policy can be carried out with the cooperation of various parties and prioritizing local wisdom. Educational alternatives such as boarding schools owned by foundations, village schools run by educational practitioners, or collaboration between the local government and other community organizations can increase educational accessibility that is limited to infrastructure and implemented as needed. The involvement of religious leaders, traditional leaders, village heads and other social institutions is needed to recognize their presence and map local needs and ways of obtaining education.
Boarding schools that not only teach science during school hours, but also teach life skills knowledge outside of school hours, can be a medium for the transition to civilization for indigenous Papuan children. Boarding schools or village schools provide space for the assimilation process of modern culture, with children still able to carry out daily activities such as hunting. It is quite difficult for the government to implement national education standards in every school throughout Indonesia, so that the responsibility for implementing education can be shared with education movers outside the government. The government is sufficient to provide space for participation and play a role as a facilitator in the direction of implementation education policy.
The division of roles between stakeholders is very necessary to achieve the goal of improving education services for Indigenous Papuans. The central government acts as a policy regulator and local governments as program executors in the technical realm.
Various limitations and challenges in program implementation are faced by the central and regional governments, so these conditions must be utilized for other actors to be able to play a role and participate actively, including actors at the community level, consisting of village heads, tribal heads, community leaders, and religious leaders. This has become one of the supporting factors for the success of educational innovations carried out by the Government of Lanny Jaya Regency. The boarding school model has long existed in Papua Province, many of which were pioneered and run by religious foundations in Papua. Boarding schools are able to bridge students with long distances from their homes, to be cared for and supervised by the hostel manager. The following is an example of the division of roles in the development of boarding schools with the involvement of various stakeholders.