Mas Hikmat, kalau diterjemahkan secara harfiah memang sulit. Bagaimana kalau diterjemahkan secara kontekstual saja mislanya: "... the implementation of the reform program thus far has only been based on trial and error without a clearly defined framework."

Mengambil definisi Oxford berikut:

patchy = inconsistent; incomplete; existing or happening in small and isolated areas.

... patchy programs without clear/solid framework.

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Note added at 20 hrs (2006-11-11 06:43:29 GMT)
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Sample usage:
http://www.ykien.net/mykdb12.html
It is distressing that Vietnam's current education system is only a patchy program of the old one left from colonial times, he said. "Do they think about educational measures that turn out liberal citizens, or....