Evaluating Indonesia’s 2022 inclusive education implementation guidelines through UNESCO’s Inclusion and Equity Framework: A qualitative document analysis
Abstract
This study examines the extent to which Indonesia's 2022 Guidelines for the Implementation of Inclusive Education align with UNESCO's A Guide for Ensuring Inclusion and Equity in Education (2017) and identifies conceptual, structural, and practical gaps that may limit the policy's capacity to support inclusive education. The study employed qualitative document analysis using UNESCO's Inclusion and Equity Framework as the analytical framework. The findings indicate that the Guidelines are only partially aligned with UNESCO's principles of inclusion and equity. Although the policy demonstrates strong regulatory foundations and support mechanisms, it continues to emphasize disability-based accommodations rather than adopting a broader systemic approach that addresses the diversity of all learners. Major gaps were identified in cross-sectoral coordination, monitoring learners' social participation and sense of belonging, pre-service teacher education, and school-based collaborative professional development. By systematically evaluating Indonesia's inclusive education policy using UNESCO's framework, this study contributes empirical evidence to support the development of more comprehensive and equitable inclusive education policies. The study concludes that Indonesia has made important progress in expanding educational rights and support services; however, the policy has not yet fully integrated the principles of inclusion and equity into educational governance and educational practice. Strengthening governance, teacher education, monitoring systems, and collaborative support structures is essential for advancing a more sustainable and equitable model of inclusive education in Indonesia.
References
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Winzer, M., & Mazurek, K. (2020). Salamanca 25 Years Later: A Commentary on Residual Dialogues of Disability and Diversity. International Dialogues on Education Journal, 7(1). https://doi.org/10.53308/ide.v7i1.9
Woodcock, S., & Woolfson, L. M. (2019). Are leaders leading the way with inclusion? Teachers’ perceptions of systemic support and barriers towards inclusion. International Journal of Educational Research, 93. https://doi.org/10.1016/j.ijer.2018.11.004
Yunita, S. (2025). Hambatan Implementasi Pendidikan Inklusif di Indonesia: Analisis Berbasis Survei 156 Sekolah. Jurnal Basicedu, 9(5).
Zakiah, W. G., Karsidi, R., & Yusuf, M. (2020). The readiness of principal and educators in implementing inclusive education policies. ACM International Conference Proceeding Series. https://doi.org/10.1145/3452144.3453783
Ainscow, M. (2020a). Inclusion and equity in education: Making sense of global challenges. Prospects, 49(3–4). https://doi.org/10.1007/s11125-020-09506-w
Ainscow, M. (2020b). Promoting inclusion and equity in education: lessons from international experiences. Nordic Journal of Studies in Educational Policy, 6(1). https://doi.org/10.1080/20020317.2020.1729587
Ajizah, A., Rachman, A., & Mirnawati. (2021). Pengaruh Mata Kuliah Pendidikan Inklusif Terhadap Pemahaman Mahasiswa PGSD FKIP di Universitas Lambung Mangkurat Terhadap Anak Berkebutuhan Khusus. SPECIAL : Special and Inclusive Education Journal, 2(1). https://doi.org/10.36456/special.vol2.no1.a3887
Andriana, E., & Evans, D. (2020). Listening to the voices of students on inclusive education: Responses from principals and teachers in Indonesia. International Journal of Educational Research, 103. https://doi.org/10.1016/j.ijer.2020.101644
Andriana, E., & Evans, D. (2021). Voices of students with intellectual disabilities: Experiences of transition in “inclusive schools” in Indonesia. British Journal of Learning Disabilities, 49(3). https://doi.org/10.1111/bld.12411
Anisa Eka Wulandari, Baharuddin, B., Saputra, M. I., & Hijriah, U. (2025). Pendidikan Inklusif pada Anak Berkebutuhan Khusus di Indonesia: Tinjauan Literatur Analisis Bibliometrik. Action Research Journal Indonesia (ARJI), 7(1). https://doi.org/10.61227/arji.v7i1.262
Anwar, C., Komariyah, L., Aznem, A., Hasbar, H., Payung, L. T., & Kesuma, A. H. (2025). Evaluasi Kebijakan Pendidikan Inklusif di Indonesia: Pendekatan CIPP dan Perspektif Keadilan Sosial. Journal of Education Research, 6(3). https://doi.org/10.37985/jer.v6i3.2576
Badan Standar Kurikulum dan Asesmen Pendidikan, K. P. K. R. dan T. R. I. (2022). Panduan pelaksanaan pendidikan inklusif. Kementerian Pendidikan, Kebudayaan, Riset, dan Teknologi.
Bonati, M. L., & Andriana, E. (2021). Amplifying children’s voices within photovoice: Emerging inclusive education practices in Indonesia. British Journal of Learning Disabilities, 49(4). https://doi.org/10.1111/bld.12405
Booth, T., & Ainscow, M. (2011). Index for Inclusion: developing learning and participation in schools (3rd Ed). United Kingdom: Centre for Studies on Inclusive Education. In Educational Management Administration and Leadership (Number 1).
Bowen, G. A. (2009). Document Analysis as a Qualitative Research Method. Qualitative Research Journal, 9(2), 27–40. https://doi.org/10.3316/QRJ0902027
Deocareza, B. D., & Soriano, M. A. L. (2025). Measuring Success in Inclusive Education through UNESCO’s Inclusion and Equity Framework. Asian Journal of Education and Social Studies, 51(9). https://doi.org/10.9734/ajess/2025/v51i92429
Direktorat Jenderal Pendidikan Vokasi, P. K. (2025). Pastikan Tak Salah Ya, Ini Perbedaan Sekolah Inklusi dan SLB | Direktorat Jenderal Pendidikan Vokasi PKPLK Kemendikdasmen. Direktorat Jenderal Pendidikan Vokasi, Pendidikan Khusus, Dan Pendidikan Layanan Khusus. https://vokasi.kemendikdasmen.go.id/read/b/pastikan-tak-salah-ya-ini-perbedaan-sekolah-inklusi-dan-slb
Donohue, D., & Bornman, J. (2014). The challenges of realising inclusive education in South Africa. South African Journal of Education, 34(2). https://doi.org/10.15700/201412071114
Fernandes, R. (2018). ADAPTASI SEKOLAH TERHADAP KEBIJAKAN PENDIDIKAN INKLUSIF. Jurnal Socius: Journal of Sociology Research and Education, 4(2). https://doi.org/10.24036/scs.v4i2.16
Firdausyi, M. F. (2024). Mutu Pendidikan Inklusif Bagi Anak Berkebutuhan Khusus di Indonesia. Jurnal Pendidikan: SEROJA, 2(2).
Ginting, S., Darmayanti, T. E., Wianto, E., & Nurliawati, N. (2025). Inclusive Education Practices In Bandung Schools: Policies, Realities, and Aspirations. Jurnal Pendidikan Dan Pengajaran Guru Sekolah Dasar (JPPGuseda), 8(1). https://doi.org/10.55215/jppguseda.v8i1.11118
Hardy, I., & Woodcock, S. (2015). Inclusive education policies: Discourses of difference, diversity and deficit. International Journal of Inclusive Education, 19(2). https://doi.org/10.1080/13603116.2014.908965
Istiqomah, H. (2020). Survei Tentang Penerapan Mata Kuliah Pendidikan Inklusi Pada Semua Program Studi di FKIP Unversitas Lambung Mangkurat. JPI (Jurnal Pendidikan Inklusi), 4(1). https://doi.org/10.26740/inklusi.v4n1.p22-36
Juntak, J. N. S., Rynaldi, A., Sukmawati, E., Arafah, M., & Sukomardojo, T. (2023). Mewujudkan Pendidikan Untuk Semua: Studi Implementasi Pendidikan Inklusif di Indonesia. Ministrate: Jurnal Birokrasi Dan Pemerintahan Daerah, 5(2). https://doi.org/10.15575/jbpd.v5i2.26904
Kurniawati, F. (2021). Exploring teachers’ inclusive education strategies in rural Indonesian primary schools. Educational Research, 63(2). https://doi.org/10.1080/00131881.2021.1915698
Manullang, T. D., Simanjuntak, F. M., Asna Juwaira, Pardosi, N. M. V., Sembiring, E. A., Nahampun, D. Y., Anggia Puteri, & Lili Tansliova. (2025). Orang Tua: Kontributor Penting Bagi Efektivitas Pendidikan Inklusi (Sebuah Riset Pustaka). CARONG: Jurnal Pendidikan, Sosial Dan Humaniora, 2(1). https://doi.org/10.62710/y6a9nh95
Masyithoh, S., Loukam, A. A., Latip, A. E., Andayani, A., Nugroho, M. N., Nuraida, N., Sa’diyah, R., Kusmawati, A., & SAM, M. (2025). Inclusive Education Implementation in Oman and Indonesia: A Comparative Analysis Study. F1000Research, 14. https://doi.org/10.12688/f1000research.171420.1
Messiou, K., Ainscow, M., Echeita, G., Goldrick, S., Hope, M., Paes, I., Sandoval, M., Simon, C., & Vitorino, T. (2016). Learning from differences: a strategy for teacher development in respect to student diversity. School Effectiveness and School Improvement, 27(1). https://doi.org/10.1080/09243453.2014.966726
Munir, I. M. (2025). Dinamika Kebijakan Pendidikan Inklusif di Indonesia: Analisis Bibliometrik Literatur. Khazanah Akademia, 9(01). https://doi.org/10.52434/jurnalkhazanahakademia.v9i01.465
Rini, T. A., & Azizah, N. (2024). Students’ Perspectives on Inclusive Education in Indonesia: Insights from a Systematic Literature Review. Indonesian Journal of Educational Research and Review, 7(2). https://doi.org/10.23887/ijerr.v7i2.79002
Safari, M. B., & Hermanto, H. (2026). Inclusive Leadership and Diversity-Friendly Schooling: A Case Study from an Elementary School in Indonesia. AL-ISHLAH: Jurnal Pendidikan, 17(4). https://doi.org/10.35445/alishlah.v17i4.8456
Setiawan, F., & Tohari, T. (2025). Inclusive Education Management in Indonesia: A Literature Analysis of Policies and Implementation Practices. Journal Corner of Education, Linguistics, and Literature, 5(001). https://doi.org/10.54012/jcell.v5i001.569
Sheehy, K., & Budiyanto. (2015). The Pedagogic Beliefs of Indonesian Teachers in Inclusive Schools. International Journal of Disability, Development and Education, 62(5). https://doi.org/10.1080/1034912X.2015.1061109
UNESCO. (2017). A Guide for ensuring inclusion and equity in education. In A Guide for ensuring inclusion and equity in education. https://doi.org/10.54675/mhhz2237
Vlachou, A. (2004). Education and inclusive policy-making: Implications for research and practice. International Journal of Inclusive Education, 8(1). https://doi.org/10.1080/1360311032000139449
Winzer, M., & Mazurek, K. (2020). Salamanca 25 Years Later: A Commentary on Residual Dialogues of Disability and Diversity. International Dialogues on Education Journal, 7(1). https://doi.org/10.53308/ide.v7i1.9
Woodcock, S., & Woolfson, L. M. (2019). Are leaders leading the way with inclusion? Teachers’ perceptions of systemic support and barriers towards inclusion. International Journal of Educational Research, 93. https://doi.org/10.1016/j.ijer.2018.11.004
Yunita, S. (2025). Hambatan Implementasi Pendidikan Inklusif di Indonesia: Analisis Berbasis Survei 156 Sekolah. Jurnal Basicedu, 9(5).
Zakiah, W. G., Karsidi, R., & Yusuf, M. (2020). The readiness of principal and educators in implementing inclusive education policies. ACM International Conference Proceeding Series. https://doi.org/10.1145/3452144.3453783
Authors
Akmalia, D. N., Susetyo, B., & Tarsidi, I. (2026). Evaluating Indonesia’s 2022 inclusive education implementation guidelines through UNESCO’s Inclusion and Equity Framework: A qualitative document analysis. Al-Fikru : Jurnal Pendidikan Dan Sains, 7(1), 73–91. https://doi.org/10.55210/al-fikru.v7i1.2569
Copyright (c) 2026 Dinda Nur Akmalia, Budi Susetyo, Iding Tarsidi
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