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 2009 ISBN (paperback) 978-0-7969-2238-0 ISBN (pdf) 978-0-7969-2255-7 © 2009 Human Sciences Research Council Copyedited by Lisa Compton 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 Tables and figures iv Preface v Acknowledgements vii Acronyms and abbreviations viii Glenda Kruss – Glenda Kruss Free download from www.hsrcpress.ac.za Ursula Hoadley Chaya Herman and Venitha Pillay Crispin Hemson Adele Gordon Adele Gordon Glenda Kruss Appendix List of interviews conducted at each university 175 Appendix Research questions for interviews and documentary analysis 181 Tables A comparison of IPET enrolments at the five cases: 2007 Table 1.2 Total enrolment in IPET across the remainder of the system: 2007 Table 1.3 HEQC accreditation of ACE, BEd and PGCE programmes Table 2.1 Curriculum restructuring in teacher education: 1994–2007 28 Table 3.1 IPET student numbers at Mafikeng campus: 2005–2007 Table 3.2 IPET student numbers at Potchefstroom campus: 2005–2007 Table 5.1 Student numbers in education at UZ: 2000–2005 Table 5.2 UZ Education Faculty structure Table 5.3 UZ Education Faculty research output, measured in South African postsecondary education (SAPSE) units 99 Table 6.1 CPUT academic staff complement by position and campus: 2008 Table 6.2 IPET programme enrolments at CPUT by campus, race and gender: 2007 111 Table 6.3 Free download from www.hsrcpress.ac.za Table 1.1 Assessment and weightings: mathematics and specific subject didactics 33 35 83 91 110 Figure Figure 3.1 iv Steps in the development of the aligned BEd curriculum at NWU 39 118 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 Free download from www.hsrcpress.ac.za 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 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, among 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 second 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 v 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 Returning to five of 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 Free download from www.hsrcpress.ac.za The present monograph reports on the study conducted to address 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 vi This study would not have been possible without the active participation of the team of insightful and rigorous researchers who have committed themselves to the project over the past three years It has been a privilege and a pleasure to work with all of them Nor would it have been possible without the ongoing support and willing participation of the managers and academics of the five teacher education faculties and schools, at times under extremely vexing circumstances To the deans, senior managers and academics in education at Cape Peninsula University of Technology, North West University, University of South Africa, University of Witwatersrand and University of Zululand who opened their daily practice to scrutiny, I give grateful acknowledgement of their contribution to research on teacher education Free download from www.hsrcpress.ac.za On the production side, there are those who have contributed to the final product The manuscript has been reviewed by Linda Chisholm of HSRC, Tessa Welch of SAIDE and Jonathan Jansen Their comments and suggestions have helped to create a more nuanced argument and product, in order to open up the debate At the HSRC Press, Inga Norenius has been a wonderful editorial project manager and Lisa Compton has been a meticulous and patient copy editor I am grateful to the Embassy of the Kingdom of the Netherlands for the funding which afforded the opportunity to conduct this research vii Advanced Certificate in Education AELS Applied English Language Studies BEd Bachelor of Education C2005 Curriculum 2005 CHE Council on Higher Education CNE Christian National Education COTEP Committee on Teacher Education Policy CPTD continuing professional teacher development CPUT Cape Peninsula University of Technology DoE Department of Education DoL Department of Labour ECD early childhood development EFT Education Foundation Trust FET Further Education and Training FP Foundation Phase GET General Education and Training HDE Higher Diploma in Education HEDCOM Free download from www.hsrcpress.ac.za ACE Heads of Education Departments Committee HEQC Higher Education Qualifications Framework IP Intermediate Phase IPET initial professional education of teachers JCE Johannesburg College of Education MCTE Ministerial Committee on Teacher Education MEd Master of Education NCHE National Commission on Higher Education NCS National Curriculum Statement NPDE National Professional Diploma in Education NPFTED National Policy Framework for Teacher Education and Development NQF National Qualifications Framework NSE Norms and Standards for Educators NWU North West University OBE outcomes-based education PGCE Postgraduate Certificate in Education SAQA South African Qualifications Authority SP Senior Phase UCT University of Cape Town UNISA University of South Africa UZ University of Zululand Wits University of the Witwatersrand WSoE viii Higher Education Quality Committee HEQF Wits School of Education Introduction Glenda Kruss Free download from www.hsrcpress.ac.za Any contemporary analysis of development and growth prospects in South Africa quickly moves to highlight the low levels of education and the shortage of critical skills among the population – which in turn shifts the focus to the poor quality of the schooling system Analysts and activists ponder why it has not been possible to transform more substantially the legacy of the apartheid schooling system Explanations are sought and strategies have been initiated in relation to unequal financing and resourcing, the nature of school leadership and administration, the controversial change to an outcomes-based curriculum and the quality of teachers However, there has not been enough sustained focus on the pivotal role of the teacher education system that produces South Africa’s future teachers After 1994, the recommendations of the National Teacher Education Audit (Hofmeyr & Hall 1995) initiated a process to enhance the ability of the teacher education system to produce quality teachers who can produce quality students – that is, students who can become well-educated citizens able to participate actively in a democratic society and in the modern globalised economy Over a 10-year period, the teacher education landscape was transformed significantly As each new policy shift occurred, there has been analysis of the proposed change and its likely implications, but to date there has been little systematic, longitudinal reflection on the impact on individual institutions and the system as a whole over the past decade Such was the impetus for the initiation of a research project to investigate the nature of institutional restructuring, and the impact of change on the ability of the teacher education system to produce the kinds of teachers required (Kruss 2008) This monograph contributes to that research agenda, focusing on shifts in the official and espoused curricula of initial professional education of teachers (IPET) programmes – the Bachelor of Education (BEd) and the Postgraduate Certificate in Education (PGCE) qualifications – at institutional level in the context of national institutional and curriculum restructuring It aims to delineate the conditions of possibility and constraint for the development of future teachers – the opportunities and challenges faced by teacher educators in diverse university contexts Curriculum restructuring in diverse institutional contexts The research project drew on and extended research on systemic change in teacher education begun in the late 1990s by scholars such as Jansen (2002, 2004) and Lewin, Samuel and Sayed (2003), among others (Mfusi 2004; Sehoole 2005) It attempted a broad systemic sweep of the complex interplay between dynamics at the macro-, meso- and micro-levels: the interaction between national policy, institutional strategies and education faculties or schools with their academics The premise was that in order to understand the potential of the emerging new teacher education system, we need to research the ways in which distinct universities are changing, shaped by institutional micro-politics in complex forms of interaction with government frameworks and actions The first set of case studies we conducted in 2006 was extremely ambitious and wide-ranging in its focus on the macro-, meso- and micro-levels simultaneously In effect, the analysis provided the basis for the construction of an institutional history of teacher education over the last 10 years (Kruss 2008) The case studies covered internal and external trajectories of institutional restructuring in diverse university contexts and began to elaborate the impact on IPET programmes in terms of organisational shifts, staff and student shifts, and programme and curriculum shifts The longitudinal multiple comparative case-study design of the research meant that specific trends and dynamics in 11 of the 22 universities that offer teacher education could be aggregated with confidence to illuminate conditions of possibility and constraint across the national teacher education system Free download from www.hsrcpress.ac.za The initial intention was that on this basis we would investigate emerging new institutional cultures and the ways in which they impact on future teachers While the challenge of merging unequal partners had been reported on in the international literature to a limited extent (Harman 2002), in the South African research literature there had not yet been a study of the challenges of institutional cultures that emerge out of externally mandated mergers, particularly where the merged institutions are very diverse in their missions (such as the merger of a university and technikon, as at the University of South Africa (UNISA)), or culturally uncomplementary (as in the merger of Potchefstroom and North-West at North West University (NWU)) or unequal in status (as in the merger of a university and college, as at the University of the Witwatersrand (Wits) and the Cape Peninsula University of Technology (CPUT)) However, a study of institutional culture as intended proved implausible when the time came to begin research in 2007, for a combination of pragmatic, conceptual and methodological reasons The study of institutional cultures in South African higher education is not yet advanced and is conceptually relatively limited The focus has tended to be on the ‘fit’ between an institution’s historical identity, tradition and culture, and those of a shifting student population, with the emphasis on student access and success (Barnes 2005; Cross 2004; Erasmus 2006; McKinney 2004; Steyn & Van Zyl 2000; Thaver 2006; Van Zyl, Steyn & Orr 2003; Walker 2005) The purpose of our study was different Ideally, we wanted to focus on how academic teacher educators were shifting their identities as they became located in new institutions that were created by external mandate of government policy, how these dynamics were informing their curricula and approaches towards their roles as teacher educators, and how the conditions for teacher education were shifting as a result.2 What are the conditions for initial teacher education in an institutional context characterised by potentially conflicting values and identities, and shaped by former old and emerging new institutional cultures, that have to be managed to create a synergy of purpose? In 2007, we found that South African universities were too close to the point of grappling with the demands of merger implementation for substantial change in identifiable institutional cultures to be discernible and ‘researchable’ We felt that it was premature to study emerging new institutional cultures, given the typical definition of institutional culture as deep-rooted or historically transmitted sets of values and assumptions (Harman 2002; Van Zyl, Steyn & Orr 2003) We thus sought Trowler (1998) has conducted research along these lines on academic responses to a new national policy framework in higher education in the United Kingdom What kind of commitment is there within your university for education in general and for IPET specifically? faculties or schools? What changes have you tried to initiate to facilitate integration of academics and programmes? Free download from www.hsrcpress.ac.za In what ways have you tried to change the content and form of your IPET curriculum since 2000 and why? curriculum restructuring: – Introduction of norms and standards – College incorporation – University merger – HEQC processes 2005/06 – NPFTED 2007 What are the processes of IPET curriculum restructuring that you have initiated in your faculty or school since 2000? curriculum restructuring: – Introduction of norms and standards – College incorporation – University merger – HEQC processes 2005/06 – NPFTED 2007 IV Interview questions: university managers 184 What changes has your university tried to initiate to facilitate integration of IPET academics, programmes and curricula? What is the relative position and standing of IPET within the university? example, what is proposed in the institutional operating plan? What is proposed in the programme qualification mix? to produce future teachers? to IPET within the university? – State of buildings – Suitability for methodology employed publications? Free download from www.hsrcpress.ac.za programmes and for accrediting new programmes? What support does your university offer faculties and academics for curriculum restructuring processes? V Data on IPET programmes, student numbers and staff profiles Update/obtain a clear description of programmes and qualifications offered, to ascertain relative significance/status of IPET and to analyse IPET in terms of school phase and niche specialisation Update/obtain total student numbers in IPET, continuing professional development and postgraduate programmes – if possible, trend data – to ascertain relative significance/status of IPET over last ten (or three, as required in the HEQC documents) years, and shifts in student demographic profile over time/following incorporation or merger Obtain figures on the financial support offered to IPET students – including how many students in what school phase or niche specialisation: 2007 to increase number of IPET enrolments) Update/obtain a clear description of the staff profile: position/status in the organisation and demographic profile (especially higher degree qualifications) in relation to total staff complement profile 185 VI Documentary analysis: IPET programmes and curricula Based on an analysis of IPET programmes and curricula as reflected in formal documents such as faculty handbooks, course outlines or student notes, describe the main thrust of subject content in the curriculum programme structure? content of the subject? ‘expert’ or at the level they will teach? Describe the pedagogical theory underpinning curriculum Free download from www.hsrcpress.ac.za and weight in the programme structure? How are students grouped for instruction, if evident? What knowledge about the contexts within which teaching will take place is important for future teachers? programme structure? How long is teaching practice and when does it occur? programme structure? VII Documentary analysis: the university and the faculty/school/department 186 Describe the main thrust of the restructured university’s current mission and vision from formal documents (accessed via websites and promotional material) Analyse the main thrust of the restructured education faculty, school or department’s current vision in general and in relation to IPET programmes ADELE GORDON is an independent education consultant working in the area of policy and rural development CRISPIN HEMSON is a Senior Lecturer in the Faculty of Education at the University of KwaZulu-Natal and Policy Studies in the Faculty of Education at the University of Pretoria a post-doctoral fellow in the School of Education at the University of Cape Town GLENDA KRUSS is a Chief Research Specialist in the Education, Science and Skills Development research programme at the Human Sciences Research Council Free download from www.hsrcpress.ac.za University of Pretoria 187 Free download from www.hsrcpress.ac.za 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