Prospects and pitfalls: A review of post‐apartheid education policy research and analysis in South Africa

The 10‐year anniversary of the first democratic elections in South Africa in 2004 provoked much reflection and fuelled new policy debates on both the progress and failures of educational reform. While a myriad of achievements have been touted and are well‐known to international audiences, a swelling critique from inside South Africa shows that much work remains to be done. By glancing backward as a way to understand how to move forward, we review several important recently published books on post‐apartheid education policy to learn how policies were conceived, what went well and what went seriously wrong. In engaging this extended analysis we provide a glimpse into the unique set of circumstances and challenges faced by the South African government over the last 15 years (namely the tensions between equity and redress and global competitiveness), while offering a sustained critique of the resulting policy outcomes through a social justice lens.     

Tensions in the quality assurance processes in post‐apartheid South African schools

This paper tracks the development of the Integrated Quality Management System in South African schools after the dismantling of apartheid in 1994. We argue that the quality processes that are now in place emerged in response to the autocratic school inspection systems that preceded them but did not sufficiently address the impact of educators’ experiences of the preceding systems. In the new democratic environment, it was important that new systems recognized the need for educator and school development. But given the breakdown of the culture of teaching and learning in South African schools, it is also not surprising that there was a concern that the new systems should ensure accountability. We analyse interviews with teachers to argue that the new system presents a tension between accountability and development processes which results in surface compliance rather than genuine engagement.     

A roadblock to social justice? An analysis and critique of the South African education Roadmap

The article provides an analysis and critique of contemporary debates concerning the quality of education in South Africa from a social justice perspective. In particular the article focuses on the Education Roadmap which has gained support from a range of stakeholders in South Africa including key members of the newly elected government. The Education Roadmap is considered in relation to dominant approaches to understanding education quality within the education literature, namely the human capital and human rights based approaches. It is argued that the Roadmap shares characteristics of both approaches although it is particularly influenced by the former. The article sets out an alternative approach based on social justice principle that, whilst developing and extending aspects of dominant approaches, is considered pertinent because it articulates with historical struggles around education in South Africa. It is suggested that although the Roadmap demonstrates limited characteristics of a social justice approach, it falls short in other key aspects and it is these aspects that must form the basis for ongoing struggles for a more equitable education system.     

Educational policy‐making in post‐communist Ukraine as an example of emerging governmentality: discourse analysis of curriculum choice and assessment policy documents (1999–2003)

Educational policy‐making in the Commonwealth of Independent States (CIS) is still building upon the ambivalences and uncertainties of post‐communist transformation. The international support, expertise and discourses – coupled with communist legacies, stalled democratic developments and national discourses – produce unique effects on education in each of these countries. This paper is an attempt to conceptualise educational policy‐making (with its disparities between ‘democratised’ discourses and ‘Sovietised’ practices) as a form of emerging governmentality or governmentality‐in‐the‐making on the level of the state, using Ukraine as a case study. Analysing policy‐making through the perspective of emerging governmentality brings into focus the genealogy of post‐independent reforms, which is (as a part of the technologies of government) threaded into a broader governmental project of restructuring the state and legitimising its rationality. The final empirical part of the paper presents a discourse analysis of selected curriculum choice and assessment policy documents (1999–2003) and embedded in them the complex interplay of internal and external discourses, which work together to construct and justify the emerging governmental rationality of post‐communist Ukraine.     

Race is nowhere and race is everywhere: narratives from black and white South African university students in post‐apartheid South Africa

This paper examines the life history narratives of a group of 12 black and white male and female undergraduate students at a historically white Afrikaans medium university, now undergoing its own transformation in post‐apartheid South Africa. Conceptualizations of identity and discourse across four elements of context, setting, situated activity and self are employed to examine their accounts. Three framing discourses, comprising the official storyline of a rainbow nation and new higher education policies, the formal storyline of institutional change, and the informal space of relationships and interactions are used to analyse student narratives in terms of how they produce, reproduce and transform race and identity. What emerges is a complicated picture in which identities cannot be simply read off either from the official discourse or from colour and culture as the levels of discourse articulate and collide with a history of racial separateness and context and setting, with particular identity effects.

What varieties of men and women now prevail in this society and in this period? And what varieties are coming to prevail? In what ways are they selected and formed, liberated and repressed, made sensitive and blunted? (Mills, 1959 Mills CW (1959) The sociological imagination (London, Oxford University Press) [Crossref] [Google Scholar], p. 7)     

Current and predicted staffing patterns in post‐primary schools: the perception and experience of school principals

Evidence suggests that teacher shortages in Western Society, largely attributable to social and economic change, are threatening the future of school education in many developed economies. Questions concerning the subject areas affected and the impact teacher shortages have on schools and on pupil learning are topics of mounting speculation. In contrast to the increasing body of research undertaken to explore these issues in other parts of the UK, much less is known about staffing patterns in post‐primary schools in Northern Ireland. This paper seeks to inform the debate and to present findings from the perceptions and experiences of 136 post‐primary school principals. Results suggest that most principals have experienced recruitment difficulties in a range of subjects; those most frequently cited include the sciences, particularly physics, mathematics, technology and design, home economics and ICT. Principals believe that staff shortages not only have a negative impact on teaching and learning but are also set to increase. This paper discusses these findings and argues the need for intervention and a change in government policy to break this self‐perpetuating cycle.     

The role of Representative Councils for Learners in South African schools: Maximal or minimal participation?

Abstract

In 1999 the South African Department of Education issued guides for the Representative Councils for Learners established in terms of the South African Schools Act, 1996 (Act 84 of 1996). This article examines the usefulness of these guides in promoting democracy and education for citizenship in South African schools. The guides are located in the context of theories of participatory democracy, representation, and education for citizenship, and of the democratic strengths of the People's Education Movement of the 1980s. In this context, it is argued that the main tendency of the guides is to undermine democratic participation, and that their favoured conception of education for citizenship is minimalist. The article emphasises the need for a more maximalist approach to citizenship education, and for more scope for participatory democracy in schools.     

The Inclusion Lottery: who's in and who's out? Tracking inclusion and exclusion in New South Wales government schools

The last few decades have witnessed a broad international movement towards the development of inclusive schools through targeted special education funding and resourcing policies. Student placement statistics are often used as a barometer of policy success but they may also be an indication of system change. In this paper, trends in student enrolments from the Australian state of New South Wales are considered in an effort to understand what effect inclusive education has had in this particular region of the world.     

Strategies of alliance: Models and modes of post‐secondary‐university integration

Abstract

Late in 1996, Kalgoorlie College and the Western Australian School of Mines in Western Australia were merged to form an expanded campus of Curtin University, based in the state capital city of Perth. This paper uses a frame analytical approach to examining how differing and competing interpretations and commitments affected how the merger was played out. Three important frames, each of which had a major influence on the merger for periods of time are identified: one that emphasised regional social and economic development, another centred on education for industry and a third based on economic rationalism. This analysis connects changes in the direction of the merger to shifts in the way the merger was framed.     

Changing families,changing childhoods: changing schools?

This paper reports key findings from a study of young people’s engagement in ‘atypical’ activities in their families. The project focused on young caring and language brokering as two roles that are not assumed to be ‘normal’ activities for children and young people. The findings presented are from a survey of 1002 young people and from one‐to‐one interviews with a sample selected from the survey sample. The voices of young people in the interview study are used in the paper to illustrate the diverse range of childhood experiences. The paper discusses some of the ways in which pastoral systems in schools can take account of diverse childhoods and family needs more effectively than they have done in the past.     

Reflections on policy and practice of inclusive education in pre‐primary schools in Cyprus

In July 1999 the House of Parliament in Cyprus passed the Education Act for Children with Special Needs, according to which all children have the right to be educated in their neighbouring regular school together with their age‐mates. An important component of this law is that it introduces, for the first time, inclusive education into pre‐primary education. A child can be considered as having special needs only when he/she has attained the age of 3 years or older. The purpose of this paper is to examine how the policy of inclusive education is implemented in pre‐primary schools in ­Cyprus, to investigate whether some children are still marginalized (after the implementation of the new law) and, if they are, to identify factors influencing marginalization or acting as a barrier to inclusion. We also briefly present the results from a study we conducted that supports the discussion of the issues raised in this paper.     

Re‐negotiating autonomy and accountability: The professional growth of developers in a South African institution

Abstract

This paper considers the professional growth of academic developers from a South African perspective. Locating themselves within broad political, institutional, academic and student dynamics, academic developers attempt to influence interpretations of quality, professional autonomy and accountability, academic literacy and Africanization. Capacity‐building in academic development which is aligned with teaching and learning processes within institutions and supports institutional transformation and redress, is emphasized. Using an interactionist model of participation between developer and those participating in development initiatives, the authors focus on both the contestable notion of the term ‘development’ and the need for authentic engagement between academic and academic developer.     

“The real and the ideal”: teacher roles and competences in South African policy and practice

Policy-makers have placed great faith in education as a means of transforming and developing South African society. Recent policy documents specify occupational, professional and academic roles and competences for teachers. These documents require a significant shift to “extended” professionalism. Do these roles and competences resonate with current classroom realities and practices? This question was addressed by mapping the practices of “effective” teachers onto research schedules based on the six major roles prescribed by policy. In practice, teachers assumed roles that were more in accord with personal value systems, local cultures, and contexts. Some significant disjunctions at the interface of policy and practice raise serious questions about policy assumptions. “Tissue rejection”, a not unlikely possibility, would jeopardise the curriculum edifice upon which transformation and development depend. Worse, historically unequal schools could become more so.     

Education and disadvantage: the role of community‐oriented schools

The proposed development of extended schools in England is part of an international movement towards community‐oriented schooling, particularly in areas of disadvantage. Although on the face of it this movement seems like a common‐sense approach to self‐evident needs, the evaluation evidence on such schools is inconclusive. In order to assess the likelihood that community‐oriented schooling will have a significant impact on disadvantage, therefore, this paper analyses the rationale on which this approach to schooling appears to be based. It argues that community‐oriented schools as currently conceptualised have a focus on ‘proximal’ rather than ‘distal’ factors in disadvantage, underpinned by a model of social in/exclusion which draws attention away from underlying causes. They are, therefore, likely to have only small‐scale, local impacts. The paper suggests that a more wide‐ranging strategy is needed in which educational reform is linked to other forms of social and economic reform and considers the conditions which would be necessary for the emergence of such a strategy.     

Schools as (Dis)Organisations: the ‘breakdown of the culture of learning and teaching’ in South African schools

A prominent and problematical legacy of apartheid education, which requires transformation, is the poor functioning of a large number of previously black schools (commonly termed ‘the breakdown of the culture of teaching and learning'). While the causes of breakdown may be traced back to the years of opposition to apartheid and the resistance struggle waged within schooling from 1976 onwards, it is less clear what may be done to remedy the situation. This article explores particular organisational dimensions of school failure with a view to understanding how they have affected the operation of schools, why schools have broken down and what interventions may remedy this breakdown. It moves beyond rational theories of organisation to argue that perspectives derived from psychoanalytical approaches to organisation may be useful in planning strategies for intervention to transform teaching and learning in these schools.     

Examination and learning: an activity‐theoretical analysis of the relationship between assessment and educational practice

The backwash effect of assessment on learning is widely acknowledged. This article discusses the impact of assessment on learning in a wider sense, by focusing on how assessment drives not only student learning, but also the teaching practices, the designing of educational programmes and the production of learning material. The focus is on how assessment affects education at a system level and the article conceptualizes the backwash effect of assessment on learning from a systemic perspective. Activity theory, as developed by Engeström (1987 Engeström Y (1987) Learning by expanding. An activity‐theoretical approach to developmental research (Helsinki, Orienta‐Konsultit Oy)  [Google Scholar]), is used as a framework to conceptualize this systemic affect of assessment. The empirical basis for the analysis is an ethnographic study of the compulsory preparatory course in philosophy, logics and philosophy of science at the University of Oslo.     

Child‐Rearing: On government intervention and the discourse of experts

For Kant, education was understood as the ‘means’ to become human—and that is to say, rational. For Rousseau by contrast, and the many child‐centred educators that followed him, the adult world, far from representing reason, is essentially corrupt and given over to the superficialities of worldly vanity. On this view, the child, as a product of nature, is essentially good and will learn all she needs to know from experience. Both positions have their own problems, but beyond this ‘internal debate’, the change in the content of education (i.e. child‐rearing and schooling) is now furthermore due to a radical pluralism that has swept the world. Moreover, there may be differences in value between individual parents and between values held within the family and those held in society at large. Among other reasons this has put more generally children's (and parents’) ‘rights’ on the agenda, which differs from thinking of education in terms of a ‘practice’. The paper develops this latter concept and the criticisms to which it has been subject and argues that there is no necessary incompatibility between initiation into an existing practice and transforming that practice in some way, if it is emphasized how practices are learned and enacted. It then turns to the tendency in education and child‐rearing, as in other spheres of human interaction, for more laws and codes of conduct and to call upon experts for all kind of matters. It argues that performativity rules on the level of the practitioner, of the experts, and even on the level of educational research. It argues that many governments have adopted in matters of schooling the language of output and school effectiveness and that something similar is now bound to happen in the sphere of child‐rearing (with talk of parenting skills and courses). This is made credible due to a particular model of educational research, i.e. an empiricist quasi‐causal model of explaining human behaviour. The paper then discusses the problems with this stance and argues that we should part company from the entrepreneurial manipulative educator to open up a sphere of responsiveness for the child and that for these reasons, the concept of the ‘practice of child‐rearing’ should be revisited. Insisting on the complexities that have to be taken into account and thus surpassing a discourse of effectiveness and output as well as of codes of conduct and rulings of courts of law, may help us to focus on what is really at stake: to lead a meaningful life, to be initiated into what is ‘real for us’ and what we value. It concludes that thus restoring a place for child‐rearing as a practice will do justice to the responsiveness to which each child is entitled.     

Between dissonance and grace: the experience of post‐secondary leaders

This study explores what it means for academic leaders to work in post‐secondary institutional contexts. Four themes emerge: balancing daily dissonance; learning experientially to lead; creating learning spaces; and needing moments of grace. The research reveals that leaders seek deeper understandings of their work and their characterization.