Free download from www.hsrcpress.ac.za Free download from www.hsrcpress.ac.za Published by HSRC Press Private Bag X9182, Cape Town, 8000, South Africa www.hsrcpress.ac.za First published 2008 ISBN 978-0-7969-2221-2 © 2008 Human Sciences Research Council Copy-edited by Laurie Rose-Innes Typeset by Robin Taylor Cover by Fuel Design Print management by comPress Distributed in Africa by Blue Weaver Tel: +27 (0) 21 701 4477; Fax: +27 (0) 21 701 7302 www.oneworldbooks.com Distributed in Europe and the United Kingdom by Eurospan Distribution Services (EDS) Tel: +44 (0) 20 7240 0856; Fax: +44 (0) 20 7379 0609 www.eurospanbookstore.com Distributed in North America by Independent Publishers Group (IPG) Call toll-free: (800) 888 4741; Fax: +1 (312) 337 5985 www.ipgbook.com Free download from www.hsrcpress.ac.za Futures are not inevitable They are imagined and created, but always with the legacy of the past bound into their very fabric The important task we have is to be willing to imagine the creation of institutions and social relationships that maximize outcomes for all individuals rather than for a few (Robertson 2005: 167) Free download from www.hsrcpress.ac.za Tables and figures vi Preface viii Acknowledgements x Acronyms and abbreviations xi Studying teacher education and institutional change in South Africa in 2006 Rapidly changing policy and governance 18 Internal restructuring in response to external imperatives 35 The dynamics of externally mandated change (I): the incorporation of colleges of education 49 The dynamics of externally mandated change (II): mergers and complexity 79 Free download from www.hsrcpress.ac.za Current structure, focus and capacity 112 Impact of restructuring on the core business of initial teacher education 152 Initial teacher education and institutional change 181 Appendix Overview of teacher education restructuring, 1990–2004/05 194 Appendix List of interviews conducted at each university 201 Appendix Case study report template 215 Tables Selection matrix – trajectories of change Table 2.1 Provincial distribution of colleges of education, 1994 Table 2.2 The shift from faculties to departments or schools Table 2.3 Trajectories of change in teacher education Table 3.1 Deficits across faculties, University of the Witwatersrand, 2003 Table 3.2 Faculties at the University of Fort Hare, 1994–2006 Table 3.3 From technical colleges to universities of technology Table 4.1 Legislated college incorporations, 2000 Table 4.2 Colleges in KwaZulu-Natal incorporated into higher education institutions 51 Table 4.3 Amounts allocated for the incorporation of colleges of education (R’000) Table 4.4 Students and academic staff at colleges of education in the Free State, 1998 61 Table 4.5 Colleges of education, Limpopo province, 2000 Table 4.6 Colleges of education in the Eastern Cape, 2000 Table 6.1 Structure of the divisions at the University of the Witwatersrand School of Education 126 Table 6.2 Programme organisation, University of the Witwatersrand Table 6.3 Education article output by institution, 2000 and 2004 Table 6.4 Permanent academic staff numbers, 2006 Table 6.5 HEQC accreditation: National MEd Review, 2005/06 Table 6.6 Total education enrolment by province, 1995–2005 Table 6.7 Headcount education enrolments per university, 2005 Table 6.8 Initial teacher education enrolments, 2005 Table 6.9 Postgraduate enrolments in education at universities, 1995–2003 142 Table 6.10 Postgraduate enrolments in education at technikons, 1995–2003 143 Table 6.11 Enrolment trends at the University of Zululand, 2000–2005 Table 6.12 Race and gender profile of education students, 1995 and 2004 Table 6.13 Initial teacher education enrolments at the University of the Free State, 2001–2005 148 Table 6.14 Enrolments by race and gender at the Cape and Peninsula Technikons, 1995–2003 149 Table 6.15 vi Provision of pre-service teacher education at public higher education institutions, 2005 Table 1.3 ©HSRC 2008 Provision of teacher education, 1994 Table 1.2 Free download from www.hsrcpress.ac.za Table 1.1 Enrolments by qualification at the Cape and Peninsula Technikons, 2004 150 10 21 27 33 42 44 45 49 62 64 127 134 135 136 139 140 141 144 145 53 Figures Figure 5.1 Institutional restructuring in the formation of North-West University 86 Figure 6.1 Rhodes University Faculty of Education organisational structure, 2006 Figure 6.2 Structure of the Faculty of Education, University of Zululand Figure 6.3 Structure and hierarchy of the Faculty of Education at the University of Fort Hare 120 Figure 6.4 Structure of the Faculty of Education at the Cape Technikon Figure 6.5 Structure of the education schools and departments at the Nelson Mandela Metropolitan University, 2006 123 Figure 6.6 Comparative headcount enrolments in education at the Eastern Cape universities, 1994–2004 146 Figure 6.7 Students registered at Rhodes University Faculty of Education, 2006 116 117 122 Free download from www.hsrcpress.ac.za 147 vii ©HSRC 2008 The Teacher Education in South Africa series is produced as part of the Teacher Education Programme (TEP), funded by the Embassy of the Kingdom of the Netherlands from 2005 to 2008 The programme took place at a critical juncture in the development of teacher education in post-apartheid South Africa Since 2004, sustained attention has been given to the improvement of teacher education consequent on the revision of the curriculum and the restructuring of higher education In October 2004, the Council on Higher Education (CHE) initiated a review of teacher education programmes On 26 April 2007, a National Policy Framework for Teacher Education and Development was gazetted This provided the basis for a new system of teacher education and development for a new generation of South African teachers Free download from www.hsrcpress.ac.za The TEP emerged within this overall context of enhanced attention being given to the improvement of teacher education Its overall goal was ‘to contribute to the knowledge and information base for policy formulation and implementation regarding the organisation and practice of teacher education, with a particular emphasis on initial teacher education (both pre-service and upgrading), as well as the professional development of school leaders and managers’ (CEA, CEPD, EFT, HSRC & SAIDE 2005) The work was organised under four major themes: teacher supply and demand; institutional culture and governance; the development of education management; and literacy and teacher development The programme was designed by a consortium of agencies with considerable expertise and experience in the field: the Centre for Education Policy Development (CEPD); the Human Sciences Research Council (HSRC); the South African Institute for Distance Education (SAIDE); the Centre for Evaluation and Assessment (CEA) at the University of Pretoria; and the Education Foundation Trust (EFT).1 The TEP was developed in consultation with stakeholders such as the national Department of Education, the Ministerial Working Group on Teacher Education, the Deans’ Forum and the Council on Higher Education/HEQC, amongst others Briefing and consultation continued through the process of research, for the consortium as a whole and in relation to specific projects This is the first of two monographs on the work of a project defined under the theme of institutional culture and governance The project aimed to explore, empirically and conceptually, the impact of two interrelated moments in specific public higher education settings across the provinces: created within specific public higher education institutions, as the outcome of complex forms of institutional restructuring since 1995? impact on the preparation of future educators? The EFT has been disbanded, and uncompleted projects have been taken over by the consortium viii ©HSRC 2008 The project was operationalised in sequential components Component One comprised a set of literature, conceptual, contextual and empirical overviews, to lay the foundation for the study Component Two focused on the history of the restructuring of teacher education institutions and examined, through a set of 11 case studies, the nature, forms and impact of distinct college incorporation, higher education restructuring and merger processes on the institutional conditions and base for teacher education in universities and technikons Case study site visits were conducted between February and April 2006 Free download from www.hsrcpress.ac.za Returning to the same sites a year or more later, Component Three built on this analysis by conducting in-depth case studies of curriculum restructuring in the education schools and faculties of each institution The present monograph reports only on the study conducted to address the first aim, on the history of restructuring A further monograph reports the findings of the study that addresses the second aim, on curriculum restructuring in the new configurations Both monographs are usefully complemented by reports from the other consortium research projects, particularly under the themes of supply and demand of teachers, and of the design and delivery of initial teacher education programmes Michael Cosser, HSRC Organisational Manager, Teacher Education Programme Glenda Kruss, Project Leader ix ©HSRC 2008 This study, more than any I have ever worked on, owes everything to the 11 universities that so generously agreed to participate in the study The study took place at a time when education faculties and schools were preparing themselves for the scrutiny of national quality assurance processes, for the first time As the study reveals, this came hard on the heels of complex intertwined processes of institutional restructuring, qualifications and curricula restructuring and changes in the schooling system – all of which have demanded simultaneous attention from teacher educators, over a very short and intense period of time That they were willing to accommodate our team of researchers at all is testament to their strong and positive commitment to developing the teaching profession and the teacher education system Free download from www.hsrcpress.ac.za The team of researchers who conducted the case studies in many senses co-authored this report and, indeed, in places, I have used direct extracts from their reports For insightful research conducted under conditions that were not always ideal, I extend my strong appreciation to, in alphabetical order: Adele Gordon (consultant), who conducted the case study of teacher education at the University of Witwatersrand Anne Hill (CPUT), who conducted the case study of Rhodes University Crispin Hemson (UKZN), who conducted the case study of teacher education at the University of Zululand Ursula Hoadley (HSRC), who conducted the case study of teacher education at North West University Bernadette Johnson (Witwatersrand), who conducted the case study of teacher education at Nelson Mandela Metropolitan University Peter Kallaway (UWC), who conducted the case study of teacher education at the University of KwaZulu-Natal Moeketsi Letseka (HSRC), who conducted the case study of teacher education at the University of Limpopo Mahlubi Mabizela (HSRC), who conducted the case study of teacher education at Fort Hare Venitha Pillay and Chaya Herman (UNISA), who conducted the case study of teacher education at UNISA Yusuf Waghid (Stellenbosch), who conducted the case study of teacher education at the University of Free State Trend data on institutional enrolments were extracted from the HEMIS database by Fabian Arends, and his willingness to address myriad queries and requests is gratefully acknowledged The support of my colleagues at the HSRC and within the Teacher Education Programme consortium, particularly Mignonne Breier, Michael Cosser, Tessa Welch, Michelle Buchler and Phoebe Kaniki, has been invaluable The reviewers of the first draft of the monograph provided critical insights that enabled a more coherent end product My deep appreciation to Jonathan Jansen, Linda Chisholm and Mokubung Nkomo for the benefit of their academic expertise Finally, I am grateful to the Embassy of the Kingdom of the Netherlands for the funding which made this research possible x ©HSRC 2008 Sources This can be drawn from institutional prospectuses and websites, organograms and data on staffing sent by the institution, as well as interviews with current managers within the institution in general and in the teacher education school, department or faculty, as well as former heads of colleges or merging entities, and individual academics (drawing on Part of the interview schedules as well as the institutional profile) Free download from www.hsrcpress.ac.za Sections An overview of the current positioning of teacher education within the higher education institution, showing its relative power and status in relation to institutional missions and programme qualification mixes: – How is the new faculty/school/department inserted into university power structures? – What is the degree of integration of physical space of the merging colleges or institutions and how does this impact on the insertion of education faculties into university structures? – Have there been any internal organisational changes in the last year or two that have impacted on education programmes? A description of the overarching structure and the divisions/departments according to which education programmes are provided: – What are the current departments or schools or subdivisions? – How central are initial teacher education programmes relative to the overall structure? – How are the colleges and/or the merging universities accommodated in this structure? Focus on the degree of integration or the extent to which they operate in parallel or to which one component has been totally absorbed – How are the finances – particularly fee structures – integrated/absorbed/ maintained as parallel structures? A description of the staff in the education faculty/school/department and those involved in initial teacher education, specifically: – Staff incorporated from colleges – – What are the total numbers absorbed into the new institution? – What proportion of the total staff complement of the incorporated colleges does that represent? – In what position and capacity are these staff absorbed – leadership/ management, or teaching (senior or junior posts)? – Staff incorporated from merging universities – – What are the total numbers absorbed into the new institution? – What proportion of the total staff complement of the merged institution does that represent? – In what position and capacity are these staff absorbed – leadership/ management, or teaching (senior or junior posts)? – Staff research profile An overview of current structures and processes that have been developed as the basis for teacher education, focusing on the relative power and contribution of constituent institutions (original university, incorporated colleges, merged institutions) – What are the new decision-making structures for developing and managing teacher education programmes and curricula? 218 ©HSRC 2008 – How are the colleges and/or the merging universities accommodated in this structure? Focus on the degree of integration or the extent to which they operate in parallel or to which one component has been totally absorbed Part Mediations of restructuring Focus An analysis of mediations of the new national teacher education policy framework and the experience of teacher educators in their interactions with national and provincial education departments, and through their own institution Free download from www.hsrcpress.ac.za Sources This is drawn from individual interviews with senior and long-serving staff members and focus-group interviews with academic staff Sections What are the understandings of teacher education restructuring evident amongst the staff? – What are the levels of awareness and knowledge of major policy change? – What are the key issues and concerns identified? What have staff identified as the major gains and losses for teacher education of the various restructuring processes? What have staff identified as main points of synergy or conflict in the process of merger and what does that tell us about their concerns and interests and the way they mediate change? What are the major challenges identified for teacher education and, likewise, what does that tell us about their concerns? How has the restructuring affected their personal and professional lives as teacher educators, and what does that tell us about their concerns? Part How restructuring has impacted on the present conditions for initial teacher education Focus An analysis of the impact on the core business of initial teacher education, exploring consensus or conflict and tension around pedagogical approaches and discourses of teacher education This Part is closely linked to the previous one, and may end up being written as an interlinked piece, if appropriate Sources This is drawn from analysis of current programmes and curricula, and through focus group interviews with academic staff (drawing off questions in Part of the schedule) Sections What is the degree of integration of initial teacher education programmes and how has the curriculum changed due to incorporation/mergers? – What is the degree of synergy or overlap or contrast in the teacher education models of the academic staff drawn from college and the university? – What is the degree of synergy or overlap or contrast in the teacher education models of the academic staff drawn from the universities being merged? 219 ©HSRC 2008 Free download from www.hsrcpress.ac.za – What is the degree of synergy or overlap or contrast in the curriculum, programme and qualifications structure of the merging entities, and which has come to prevail? – What is the current qualification and programme structure and how has it been influenced by macro-policy curriculum frameworks? – How are the different approaches reconciled in the current teacher education programmes – – structure; – philosophical and theoretical underpinnings; – pedagogy; – content; – assessment; and – mode of delivery? What is the historical profile of students in the merging entities and how has this changed due to incorporation/mergers? – What are the most marked changes in student totals and demographic profile that arise from the internal reorganisation, incorporation and/or merger, in relation to the institution as a whole, other institutions in the province and nationally? – How does this impact on the teacher education programmes offered? Conclusion This is your chance for interpretation and drawing out general conclusions, around two broad questions: How have dynamics at each level – macro, meso and micro – interacted to shape the distinct ‘pathway’ of restructuring at this institution? What is the impact of the distinct forms of restructuring experienced by this institution on the initial teacher education approaches and curricula it offers? 20 February 2006 220 ©HSRC 2008 Primary sources: policy, legislation and institutional documentation CEA, CEPD, EFT, HSRC & SAIDE (2005) Teacher education in South Africa Proposal for a research and development programme to be conducted by a consortium comprising: Centre for Education Policy Development (CEPD); Centre for Evaluation and Assessment (CEA), University of Pretoria; Education Foundation Trust (EFT); Human Sciences Research Council (HSRC); and South African Institute for Distance Education (SAIDE) Unpublished funding proposal submitted to the Royal Netherlands Embassy CHE (Council on Higher Education) (2000) Towards a new higher education landscape: Meeting the equity, quality and social development imperatives of South Africa in the 21st century Pretoria: CHE CHE (4004a) Baseline survey of academic and professional programmes in education offered by higher education institutions in South Africa Pretoria: HEQC of the CHE Free download from www.hsrcpress.ac.za CHE (2004b) Advice to the Minister of Education on aspects of distance education provision in South African higher education Pretoria: CHE DoE (Department of Education) (n.d.) 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On the latest developments in teacher education in Denmark TNTEE Publications, 1(2): 61–70 Winburg C (2005) Continuities and discontinuities in the journey from technikon to universities of technology South African Journal of Higher Education, 19(2): 189–200 Woodward R & Parsons PG (2004) Staff perceptions of the impending merger of two South African higher education institutions Paper presented at the Tertiary Education Management Conference, Hobart, Tasmania, 26–29 September Wyngaard A & Kapp C (2004) Rethinking and reimagining mergers in further and higher education: A human perspective South African Journal of Higher Education, 18(1): 185–201 231 ©HSRC 2008 Free download from www.hsrcpress.ac.za ... teacher education A double dynamic shaping teacher education globally Institutional change in South African teacher education has occurred in the context of a double dynamic driving teacher education. .. rapidly changing policy and legislative context that has framed education, teacher education and higher education restructuring since 1994 in South Africa at the macro level Change in teacher education. .. www.hsrcpress.ac.za Studying teacher education and institutional change in South Africa in 2006 Introduction This monograph attempts to analyse the distinct restructuring processes evident in a diverse range