Education policy development in South Africa, 1994 -1997

Abstract

Black South Africans have been exposed to an unequal and divided education system. It has been expected that the basis for an equitable education system would be laid in the post apartheid period. In this thesis I have provided an analysis of education policy development in South Africa between May 1994 and mid-1997. My main aim has been to understand the policy vision that the post apartheid state has enacted as the basis for educational reconstruction. The conceptual framework of this thesis is located in the academic fields of Education and Development and Policy Sociology. I have focused on the interaction between the broad delimitations set by the structural, economic and political dimensions in society on the one hand, and the political and policy dynamics that have given education policy its specific meaning on the other hand. The role of the government in enacting a specific policy vision has been at the centre of my analysis. The government has effected a conservative vision with the adoption of the Growth, Employment and Redistribution (GEAR) macroeconomic strategy. GEAR has targeted the development of an export-based global economy along post fordist lines. Predicated upon an emphasis on fiscal discipline, the dominant policy orientation has supported equity but without an emphasis on redress. This approach has not provided the necessary basis for education reconstruction. The National Qualifications Framework (NQF)and Outcomes-based education (OBE) embody a definite vision in terms of which education policy would be aligned with economic development. This vision is based on the false assumption that education should playa fundamental role in producing the sophisticated labour demands of a globally competitive economy. The logic of both GEAR and the NQF is internally inconsistent and the relationship between these two policy frameworks is unsustainable. By mid-1997 a definitive narrow and conservative education policy vision had been established which would impede the development of an equitable education system. Education policy 'narrowing' has not been achieved easily, nor has its outcome been inevitable. The specificity of the political context and policy processes has shaped the policy outcomes. A moderate constitutional dispensation has impeded the possibility of developing a radical policy vision. The semi-federal powers awarded to the provinces have led to inconqruence between national and provincial policy. Court challenges aimed at protecting historically acquired educational privileges, have been brought by conservative groups against national education legislation. The apartheid-era bureaucrats, whose jobs were protected by the negotiated constitution, have impeded the development of progressive policy. They brought the conservative policy reformism of the apartheid state into the new policy processes. The NQF has been developed on the basis of a policy consensus between labour and capital in support of skills training and upgrading of workers. Participation in policy processes has been determined 0[1 the basis of identified stakeholders This has given rise to a technicist policy approach that bas excluded many interest groups, academics and professional experts. Most teachers felt alienated by the curriculum policy process. Policy has been developed in a reconstituted civil society. The progressive education movement has been demobilised, and its place has been taken by a constellation of conservative forces who have used the moderate political climate to advance conservative policy interests. The government has had to make policy within a constrained political and policy environment. With regard to the main conceptual underpinning of this thesis, i.e. the relationship between equality and (economic) development, it is clear that the government has favoured the development dimension in pursuit of an education framework that would aid the generation of a globally competitive economy. Social equality has thus been sideline. I have advanced the view that where the government has reneged on the delivery of the social welfare and educational demands of an expectant polity, education policy has manifested as, means of compensatory legitimation at the symbolic level to 'signal', rather than give effect to real change. In my analysis of school access and school curriculum policy, I have suggested that policy has been limited to 'signalling' a commitment to a reconstructed and equitable education system. This has masked the conservative framework that has come to underpin education policy by mid-1997.