Democratising Education in a Decentralised System: South African policy and practice

This paper examines the democratisation of education in South Africa within the context of the policy of educational decentralisation with regards to key policy texts, namely, the South African Schools Act (SASA) and the National Norms and Standards for School Funding (NNSSF). It begins by exploring the concept of decentralisation with specific reference to the notions of democratisation and participation. This leads to an examination of these concepts within the South African context. The final section examines the policy impact of participation and democratisation in relation to the powers and functions of School Governing Bodies (SGBs) by considering four illustrative examples, namely, religion, language, admissions and teacher employment. The paper concludes by considering the policy gap between policy rhetoric and practice in relation to attempts to entrench democracy and participation, and enhance participation at the school level.     

Policy intervention and power shifts: an evaluation of South Africa's education restructuring policies

This paper argues that the South African educational restructuring policy proposals are unlikely to become interventions that help bringing about greater development, equity, participation and redress. The reasons for this are manifold. It is contended that the policy proposals are flawed in their conceptualization of the problems and misjudge the educational context and dynamics on the ground. These interventions favour the interests of the more organized and privileged sections of society and only indirectly address the needs of the excluded and disadvantaged. The policy proposals are also based on problematic assumptions about policy and the policy process, and the relationship between policy and practice. Finally, these proposals do not have an appropriate understanding of the change process and are unable to develop strategies to influence the reform process and empower the disadvantaged to struggle for a fairer, more equitable and effective education and training system.     

School-based management: stakeholder participation and the impact of stakeholder values

Abstract

One of the current international trends in educational reform is the devolution of decision-making powers from central government to school level. This trend is related to a move towards institutional autonomy, the so-called site-based (i.e. school-based) management of institutions, which refers to the issue of self-management of the institution.

School-based management is no longer an option but, rather, a reality in South African education. Legislation and policy documents all point South Africa firmly towards a school-based system of education management. The new policy framework for decentralised decision-making is also embedded in the South African Schools Act 84 of 1996. This enables each school in South Africa to renew its management in a responsible and effective way.

In spite of its widespread implementation, school-based management has locally received only moderate attention in terms of stakeholder participation and the impact of stakeholder values on the school-based management process. In response to this, this article is an attempt to incorporate a strategy to conceptualise stakeholder participation in school-based management and assess the impact of stakeholder values on the school-based management process. This philosophical review of the literature on school-based management also aims at raising and answering some of the questions about stakeholder participation and stakeholder values in school-based management in South Africa, where educational reform is the norm rather than the exception.     

Michael Young and the curriculum field in South Africa

The paper addresses the question of what we should make of Michael Young’s recent work with respect to curriculum theory by considering the particular case of South African curriculum reform. The paper thus traces two trajectories: the evolution of Michael Young’s ideas over time and South African curriculum reform in the post-apartheid period. The paper shows how the two trajectories have run in parallel, not least because of Young’s ongoing involvement and interest in South Africa. Three broad periods in Young’s career are identified: the new sociology of education period; a middle period where he engaged in substantial policy work, focusing predominantly on the relation between schooling and the economy; and his social realist phase, where much of his work has focused on an educational notion of specialized knowledge: ‘powerful knowledge’. The possibilities and limitations of this notion as it has been taken up in the research literature, and in relation to the South African case, are explored.     

Access to Schooling in a Post-Apartheid South Africa: Linking Concepts to Context

This paper focuses on the policy issue of expanding schooling in a post-apartheid South Africa. The Project of placing about two million children of school-going age in school is viewed as central to the rebuilding of South Africa. The paper argues that this project should be located within the peculiar history of this country's educational underdevelopment. Challenging the constraining influence of the New Right context should be central in conceptualising the provision of expanded school access. Access policy should be based on a notion of educational development that is linked to the overall socioeconomic development of this society. The view is promoted in this paper that a policy of quantitative expansion of schooling should not ignore the quality of such schooling.     

South Africa: First steps in the development of an inclusive education system

In this paper we trace the development of policy and legislation since 1994, which marked the introduction of a unitary non-racial system of education and training in South Africa. Policy development in this context has been guided by the universal principles of a human right to basic education, equality and the recognition of the democratic rights of parents, teachers and all learners, including those with disabilities. A major paradigm shift in education policy has reflected a move from a dual, special and general education system towards the transformation of general education to recognise and address the diverse learning needs of all learners. There have been several government initiatives aimed at restructuring and strengthening the general curriculum. This includes the introduction of a new national curriculum to accommodate a diverse range of system and learner needs. The most recent education policy recommends a shift in thinking about 'special needs and support services' in this country towards a commitment to the development of an inclusive education and training system. The real challenge which faces this country will be in the implementation of these recommendations.     

Globalization and higher education restructuring in South Africa: is democracy under threat?

My intention is to explore the link between globalization and higher education restructuring in South Africa and whether it looms as a threat to democracy. I contend that an argument can be made that the ascendancy of market-driven concerns in defining the restructuring of higher education in South Africa may have the effect whereby higher education institutions (universities and technikons) become subordinated to the demands of the market place, which situation in turn, can be detrimental to the consolidation of South Africa's newly found democracy. First, I argue that the restructuring of higher education according to the ‘logic of globalization’ would not necessarily minimize socio-economic inequality, thus providing a major barrier to the move towards deepening democracy. However, the economic, political and cultural effects of globalization as determinants of higher education restructuring in South Africa are not going to disappear, at least not for the immediate future. Already the South African government considers as a central feature of its economic policy the meeting of the ‘challenge of international competitiveness … (and) an inability to compete will increasingly marginalise the South African economy (and), have profound effects on its rate of growth and consequences for the social well-being and stability of South African society’ (CHE 2000a: 20)

Second therefore, in order to safeguard and promote democracy, in spite of the market-bound trend, I assess some democratic prospects of a globalizing world in the restructuring of higher education. Like Jones (1998: 153), I contend that an argument can be made for achieving democracy in a sphere of corporate dominance if higher education is considered as a public good that allows space for the development of relations of trust, individual autonomy and democratic dialogue.     

Empowering school-based management through decentralised financial control

Abstract

This article focuses on decentralisation of financial control as a strategy used to develop school-based management (SBM) and improve performance. SBM is a management mechanism aimed at improving schools by shifting decision-making powers regarding the budget from the central level to the schools (Raywind 1990, 142). The article examines the role of the state in decentralisation by exploring the current South African education policy on this aspect of educational reform as expressed through the Norms and standards for school funding (RSA 1998). The policy was designed in response to the demands for educational reform and restructuring initiatives.

A common feature in the implementation of this policy is the devolution of decisionmaking authority over the management of resources to schools. This includes devolution of state-allocated budgets and delegation of financial management responsibilities to school-based financial management structures through the district as a primary education service delivery system for the state. To assist both the district and the school in carrying out their responsibilities, a model for school-based financial management is presented in this article.     

南非教师教育制度的重建:进展与成效

民主新南非的教育体系是在种族隔离教育遗产的基础上通过全方位的变革建立起来的。南非教师教育制度的重建是一个漫长、复杂的过程。通过调整管理体制、颁布教师教育标准、优化院校结构、出台国家政策框架等举措,南非已建构起一个以成果和能力为本位的、具有民主治理特质的、一体化、开放式的教师教育与发展体系。国家教师教育与发展政策框架的实施虽然取得了一些成效,但也面临多方面的不确定性和挑战。     

Uneducating South Africa: The failure to address the 1910–1993 legacy

This paper analyses various data on the South African schooling system since 1910. The data collected for the study cover a wide range of education indicators, from pupil enrolments, pupil teacher ratios, real expenditure (aggregate and per capita), matriculation pass rates, to some indicators of the quality of matriculation passes. The authors provide an indication of both inputs into and outputs of the educational system. In broad terms, the data indicate that from an educational perspective South Africa followed a modernisation trajectory that, although it drew ever larger numbers of pupils into the schooling system, was partial, distorted and fundamentally dysfunctional. The educational process was strongly affected by racial factors. To the extent that education is an important determinant of long run growth performance of economies, this implies that South Africa's educational policies were inimical to its long run growth.     

The Decentralisation Of Education In Kerala State, India: Rhetoric And Reality

The decentralisation of educational administration has been widely advocated as a strategy to promote local participation in education. However, the fact that this advocacy has a long history raises the question why decentralisation has not been achieved in more educational systems. The answers to this question are many and complex. Among them are difficulties with the implementation of reforms. The present study examines some of these difficulties in Kerala State, India. It determines that although Kerala has a strong reputation for political participation, the rhetoric of decentralisation in the educational sector has not matched the reality there. The lessons to be learned in this context have wide implications for the theory and practice of decentralisation in education.     

Sport as a site of transformative non-formal education: A South African action research project

One of the legacies of apartheid is a crisis in South African education. The existing formal structures of education cannot cope with the scale nor the nature of the educational needs of the vast majority of South Africa's population. This article explores the potential role that sports programmes can play in non-formal educational provision. Within an action research format, the research project utilized the apprenticeship model of social organization for the general development of 10-year old boys through the medium of the game of rugby. Results of the project show that the developmental benefits of participation in a well organized sports programme, generalize to the contexts of formal schooling, home, and broader community life.     

Restructuring Educational Leadership in Changing Contexts: A Local/Global Account of Restructuring in Australia

The 1990s saw considerable structural reform in school education in many Anglophone nation states, marked by trends towards school-based, site-based, self-managing and self-governing schools. This article illustrates through a case study of educational restructuring in Victoria, Australia, how leadership, as a discursive practice, is redefined in the context of spatial and cultural restructuring. Restructuring produced a spatial redistribution of educational provision and individual opportunities as a result of structural adjustment reforms. These same policy moves towards post-welfarism also produced cultural shifts in attitudes to education with the rise of the new instrumentalism and entrepeneurialism. For school principals at the forefront of self managing schools, this meant shifts in resource distribution through new policy mechanisms of managerial and market accountability, and also new priorities impacting on leadership practices with a move from dialogic to decisional modes of management. The question is how recent policy moves towards learning networks and reinventing systematic support with a focus on locational disadvantage are addressing what were increased educational disparities between schools and students. Does this provide scope for more equity-driven leadership practices?     

The Decentralisation Of Education In Kerala State,India: Rhetoric And Reality

The decentralisation of educational administration has been widely advocated as a strategy to promote local participation in education. However, the fact that this advocacy has a long history raises the question why decentralisation has not been achieved in more educational systems. The answers to this question are many and complex. Among them are difficulties with the implementation of reforms. The present study examines some of these difficulties in Kerala State, India. It determines that although Kerala has a strong reputation for political participation, the rhetoric of decentralisation in the educational sector has not matched the reality there. The lessons to be learned in this context have wide implications for the theory and practice of decentralisation in education.     

Opening and transforming South African education

This article examines the challenge of opening and transforming South African education. ‘Openness’ and ‘transformation’ of any education programme in any society are ethicopolitical processes. In the case of South Africa, the transition from an autocratic education system serving the interests of a minority to a more modern and democratic educational dispensation demands a critical rethinking of the meaning of these twin concepts of openness and transformation. The policy of outcomes‐based education (OBE) has been used as a strategy for educational change. This article argues that, although OBE can be understood in the context of the desire for change, the programme’s implementation does not lead to radical opening and qualitative transformation of the South African educational sector. Any pedagogy of radical empowerment through political and deliberate advocacy policies needs to take into consideration the content of the new system of education, the professional quality of the educators, and the calibre of the new learners.     

School resources and the gender reading literacy gap in South African schools

The importance of reading literacy as a foundation for academic success is widely acknowledged. What is less well understood is why gender patterns in reading literacy emerge so early and continue throughout learners’ educational careers. This paper adds to this literature by investigating the gender patterns of reading literacy (why girls outperform boys) in South African primary schools and whether changes in the schooling system can result in favourable changes in this gender reading gap. Compatible with international trends, girls in primary schools were significantly better readers than boys during the period of investigation. We found strong links between material and human resources and achievement in reading. The link between increased resource availability and improved educational outcomes was stronger for girls than for boys and therefore increased the female academic advantage. This finding remained consistent across socioeconomic levels. The implication is that either the school resources available in South African primary schools are more suitable for teaching girls how to read or that girls appear to be able to make use of the available resources more effectively to improve reading. Policy interpretations are discussed in the context of improved resourcing of schools.     

Poverty & privilege: Primary school inequality in South Africa

The strong legacy of apartheid and the consequent correlation between education and wealth have meant that, generally speaking, poorer South African students perform worse academically. Although racial segregation has been abolished for 18 years now, schools which served predominantly White students under apartheid remain functional, while those which served Black students remain dysfunctional and unable to impart the necessary numeracy and literacy skills students should be acquiring by this level. The present study provides an overview of this dualistic nature of the primary education system in South Africa, with special attention paid to the bimodality of student performance. It argues that there are in fact two different education systems in South Africa and thus two different data-generating processes. These two sub-systems can be seen when splitting student performance by former-department, language, or socioeconomic status. The implications of such a dualistic schooling system are also elucidated, with special emphasis on government reporting and econometric modeling. The recently released SACMEQ III dataset is used for the econometric modeling. The study finds that when modeling student performance separately for the wealthiest 25% of schools on the one hand, and the poorest 75% of schools on the other, there are stark differences in the factors influencing student performance. Only five of the 27 factors are shared between the two models for mathematics, and 11 of the 30 factors for reading. This suggests a bifurcated system where the process which converts inputs into outputs is fundamentally different for each sub-system. Ultimately the paper has two logical conclusions: 1) Observing averages in South African education is uniquely misleading and overestimates the educational achievement of the majority of students, and 2) Modeling a single schooling system when there are in fact two school systems can lead to spurious results and misleading policy conclusions.     

Education for Sustainable Development in South Africa: A Model Case Scenario

Education for Sustainable Development (ESD) is an educational approach that, by being a catalyst of social change, promotes sustainability. Although South African education policy and practice appear to be oriented towards ESD, the concept is contested, and ragged with ambiguity and vagueness. Because the transformation of South African education is primarily aimed at social change, such vagueness and ambiguity could prevent the achievement of the vision of an education system that contributes to social change and sustainable development. In this article, we construct a model case scenario to assist in clarifying the concept of ESD. A model case scenario, we contend, might not only lead to an advanced understanding of the concept, but could also serve as an informative tool with which to comment on the extent to which an education system has responded to the call to promote sustainable development. A model case scenario could therefore assist the promotion of the appropriate and unambiguous use of the concept ESD and the alignment of education policy and practice to achieve the transformational goals of the South African Constitution, and of South African education.     

The quest for institutional autonomy in the Dutch higher education sector

The term ‘market forces’ has become one of the great clarion calls of the modern era. They are seen as providing the flexibility and responsiveness necessary to allow the satisfaction of consumer demands. Market forces is a term used chiefly to describe economic relationships. Can the characteristics of an economic system be used to characterise the wider society? In particular can increased flexibility and responsiveness to the needs of the consumer play a role in the shaping of Dutch educational policy? In the Netherlands the exigency of financial restraint has prompted educational expenditure cuts. Concomitant to these has been a move towards decentralisation, with self-regulation at the institutional level. Moves that have been characterised as constituting a change in the power structure. This paper argues that the operation of market forces and the promotion of institutional autonomy requires financial independence. Without financial autonomy institutional autonomy may well be a pipe dream.