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Prepared for the Education Labour Relations Council by a research consortium comprising the Social Aspects
of HIV/AIDS and Health Research Programme of the Human Sciences Research Council and the Medical
Research Council
Published by HSRC Press
Private Bag X9182, Cape Town, 8000, South Africa
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© 2005 Education Labour Relations Council
First published 2005
All rights reserved. No part of this book may be reprinted or reproduced or utilised in
any form or by any electronic, mechanical, or other means, including photocopying
and recording, or in any information storage or retrieval system, without permission
in writing from the Education Labour Relations Council.
ISBN 0-7969-2112-1
Copy editing by Vaun Cornell
Typeset by Robin Taylor
Cover design by Jenny Young
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Contents
List of tables and figures vii
Acknowledgements ix
Contributors xii
Executive summary xiii
Abbreviations xix
1. Introduction 1
1.1 Background to the study 2
1.2 Literature review 5
1.2.1 Introduction 5
1.2.2 Components of the education sector 7
1.2.3 Historical account of policy development by the DoE 8
1.2.4 Process of policy development 9
1.2.5 Commentary on the policies themselves 11
1.2.6 Issues for implementation 12
1.2.7 Role of educators in policy development and implementation 16
1.2.8 Structures for evaluation 18
1.3 Aims and objectives of the study 20
2. Methodology 21
2.1 Introduction 22
2.2 Guiding principles and conceptual framework for the study 22
2.2.1 Experts’ review of the selected HIV/AIDS and workplace
policies 23
2.2.2 DoE perspectives on the implementation, monitoring and
evaluation of policies 23
2.2.3 Perceptions of educators about the policies 24
2.3 Research methods 25
2.3.1 Methods 1 & 2: Technical Task Team meetings and researchers’
workshop to identify policies for review 25
2.3.2 Method 3: Experts’ review of the selected HIV/AIDS and
workplace policies 25
2.3.3 Method 4: DoE perspectives on the implementation,
monitoring and evaluation of workplace policies 26
2.3.4 Method 5: Survey of educators’ perspectives on DoE and union
policies and their implementation 27
2.4 Data analysis 27
2.5 Ethical clearance 28
2.6 Shortcomings and strengths of this research 28
3. OverviewofHIV/AIDSandworkplace
policies 29
3.1 Introduction 30
3.2 DoE policies 30
3.2.1 The National Education Policy Act 30
3.2.2 The South African Schools Act of 1996 30
3.2.3 The National Policy on HIV/AIDS for Learners and Educators in
Public Schools and Students and Educators in Further Education
and Training Institutions 31
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3.2.4 Education White Paper 6: Special Needs Education or Inclusive
Education 32
3.2.5 Regulations for Safety Measures at Public Schools 32
3.2.6 Employment of Educators Act 76 of 1998 32
3.2.7 Terms and Conditions of Employment of Educators 33
3.2.8 Personnel Administrative Measures 33
3.2.9 Norms and Standards for Educators 33
3.2.10 Signposts for Safe Schools 34
3.2.11 Department of Education Workplace Policy for HIV/AIDS 34
3.3 Unions’ HIV/AIDS policies 35
3.3.1 Introduction 35
3.3.2 Sadtu’s HIV/AIDS policy 35
3.3.3 Naptosa’s policy on HIV/AIDS 35
4. Reviewofpolicybyexperts 37
4.1 Introduction 38
4.2 Common points raised across all the policies examined 38
4.2.1 Content of policies 38
4.2.2 Relationship between vision and what policies can achieve 38
4.2.3 Specific coverage of HIV/AIDS within each policy 39
4.2.4 Implementation in the context of HIV/AIDS 40
4.2.5 Problems relating to implementation 42
4.2.6 Strategies for disseminating information 42
4.2.7 Resources for the implementation of policies 43
4.2.8 Educators’ capacity to perform the tasks required 45
4.2.9 Requirements for planning implementation 46
4.2.10 Collaboration with other government departments and
communities 47
4.2.11 Monitoring and evaluation of policies 48
4.2.12 Context and impact on policy implementation 48
4.2.13 HIV information interventions and treatment 49
4.2.14 Care and support of orphaned and vulnerable children 49
4.2.15 Reconstruction of perceptions about schools and education 49
4.3 Critique of policies within the DoE 50
4.3.1 The National Education Policy Act 50
4.3.2 The South African Schools Act of 1996 51
4.3.3 The National Policy on HIV/AIDS for Learners and Educators in
Public Schools and Students and Educators in Further Education
and Training Institutions 52
4.3.4 Education White Paper 6: Special Needs Education or Inclusive
Education 55
4.3.5 Regulations for Safety Measures at Public Schools 57
4.3.6 Employment of Educators Act 76 of 1998 58
4.3.7 Terms and Conditions of Employment of Educators 59
4.3.8 Personnel Administrative Measures 60
4.3.9 Norms and Standards for Educators 61
4.3.10 Signposts for Safe Schools 64
4.3.11 Department of Education Workplace Policy for HIV/AIDS 65
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4.4 Union policies on HIV/AIDS 66
4.4.1 Sadtu’s HIV/AIDS policy 66
4.4.2 Naptosa’s policy on HIV/AIDS 69
5. Implementation,monitoringand
evaluationofDoEpolicies 71
5.1 Introduction 72
5.2 Implementation practices in general 72
5.3 Disjuncture between policy and practice 75
5.4 Monitoring and evaluation structures at national level 76
5.5 Implementation and evaluation input from DoE workshop 80
5.5.1 The National Education Policy Act 80
5.5.2 The South African Schools Act and Norms and Standards 80
5.5.3 The National Policy on HIV/AIDS for Learners and Educators in
Public Schools and Students and Educators in Further Education
and Training Institutions 81
5.5.4 Regulations for Safety Measures at Public Schools 82
5.5.5 Employment of Educators Act 76 of 1998, Terms and Conditions
of Employment and Personnel Administrative Measures 82
5.5.6 Signposts for Safe Schools 83
5.6 Overall comments on the implementation of policy 83
5.7 Overall comments on the monitoring and evaluation of policy 85
6. Educatorperspectivesonworkplacepolicies 87
6.1 Introduction 88
6.2 Response rate 88
6.3 Awareness of HIV/AIDS policies 89
6.3.1 The DoE policy 89
6.3.2 Union policies 94
6.4 Implementation of DoE HIV/AIDS policy in educational institutions 96
6.4.1 Institutional AIDS committees 96
6.4.2 Awareness of the existence of an HIV/AIDS implementation plan
in institutions 97
6.4.3 Attendance of HIV/AIDS training and workshops 99
6.4.4 Types of HIV/AIDS information received by educators 102
6.4.5 Usefulness of more HIV/AIDS education directed at educators 103
6.5 Attitudes of educators to teaching learners about HIV/AIDS-related
issues 103
6.5.1 Ever taught a class on HIV/AIDS ? 104
6.5.2 Feel comfortable to teach learners about HIV/AIDS? 105
6.5.3 Willingness to teach learners about human sexuality 106
6.5.4 Willingness to teach learners about not having multiple sexual
partners 107
6.5.5 Willingness to teach learners about the use of condoms 108
6.6 Awareness of other DoE workplace policies 109
6.6.1 Awareness of DoE policy on sick leave 109
6.6.2 Systems for replacing educators who have been absent for more
than 2–3 weeks 110
6.6.3 Views on a care/support programme for educators with a drinking
problem 113
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Workplacepoliciesinpubliceducation
6.6.4 Institutional policy on sexual relationships between educators
and learners 113
6.6.5 Access to social work services 115
6.7 Attendance of professional development programmes 118
6.8 Kinds of support provided to educators 120
6.8.1 Support provided in their role as an educator 120
6.8.2 Support provided to educators for their role in AIDS
work/education 121
6.9 Kinds of support needed by educators 121
6.9.1 Support for preventing new HIV infections amongst educators
and learners 122
6.9.2 Support regarding the care of ill educators and learners 122
6.9.3 Support regarding ARV drugs 123
7. Conclusions 125
7.1 Successes 126
7.2 Review of policy by experts 126
7.2.1 Specific concerns with regard to policies 127
7.2.2 Specific gaps within the content of HIV/AIDS policy 128
7.3 Connection between policy-making and implementation 128
7.4 Monitoring and evaluation 129
7.5 Impact of policy on educators 130
7.5.1 Direct potential impacts of policy on educator attrition 132
8. Recommendations 133
8.1 Introduction 134
8.2 Brief summary of key recommendations 134
8.2.1 Policies 134
8.2.2 Implementation 135
8.2.3 Monitoring and evaluation 136
8.2.4 Impact of policy on educators 138
8.3 Potential additional sources of information for monitoring and
evaluation 139
8.4 An example of a standardised monitoring and evaluation component 141
8.5 Union HIV/AIDS policies 143
8.5.1 Sadtu’s HIV/AIDS policy 143
8.5.2 Naptosa’s HIV/AIDS policy 144
8.5.3 Conclusion 144
9. Appendices 145
Appendix A: List of expert reviewers 146
Appendix B: Original terms of reference for the expert review panel for DoE’s
HIV/AIDS and workplace policies 147
Appendix C: Amended terms of reference for the expert review panel for DoE
and unions’ HIV/AIDS policies and human resources-related
policies 148
Appendix D: Invitation to workshop on 30 March 2004, including terms of
reference 150
10. References 153
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vii
List of tables
Table 1.1: List of policies for evaluation 4
Table 1.2: Levels and types of policy documents 5
Table 5.1: General structures within the DoE 73
Table 5.2: National systems of evaluation 77
Table 6.1: Awareness of the DoE’s HIV/AIDS policy among public educators by
demographic characteristics, South Africa 2004 89
Table 6.2: Perceptions on whom the DoE’s HIV/AIDS policy addresses according to
educators who had studied or read the DoE policy, South African
educators 2004 91
Table 6.3: Issues addressed by the DoE’s HIV/AIDS policy according to educators
who had studied or read the DoE’s policy, South African educators
2004 91
Table 6.4: Public educators’ beliefs about how adequately the DoE’s HIV/
AIDS policy addresses the problem of HIV/AIDS stigma in educational
institutions by demographic characteristics, South Africa 2004 92
Table 6.5: Knowledge of union’s HIV/AIDS policy among union members by
various demographic characteristics, South African Educators 2004 94
Table 6.6: Institutional AIDS committee by type of educational institution and
province, South African educators 2004 96
Table 6.7: Awareness of the HIV/AIDS implementation plan in educational
institution among public educators by demographic characteristics, South
Africa 2004 98
Table 6.8: Awareness of the existence of an HIV/AIDS implementation plan in
their educational institution by knowledge of the DoE’s HIV/AIDS policy,
South African educators 2004 99
Table 6.9: Type of training and workshops on HIV/AIDS attended, South African
educators 2004 100
Table 6.10: Attendance of training and workshops on HIV/AIDS among public
educators by selected demographic characteristics, South Africa
2004 101
Table 6.11: Types of HIV/AIDS information received, South African educators
2004 103
Table 6.12: Past history of teaching a class on HIV/AIDS by knowledge of the DoE’s
HIV/AIDS policy amongst educators by selected study variables, South
Africa 2004 104
Table 6.13: Comfortableness with teaching their learners about HIV/AIDS by selected
study variables, South African educators 2004 105
Table 6.14: Willingness to teach learners about human sexuality by selected study
variables, South African educators 2004 106
Table 6.15: Willingness to teach learners about not having multiple sexual partners
by selected variables, South African educators 2004 107
Table 6.16: Willingness to teach learners about use of condoms by race group of
educator, South African educators 2004 108
Table 6.17: Willingness to teach learners about use of condoms by having read/
studied the DoE’s HIV/AIDS policy AIDS amongst educators by selected
study variables, South Africa 2004 109
Table 6.18: Awareness of DoE’s policy on sick leave by various demographic
variables, South African educators 2004 110
Listoftablesandfigures
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Workplacepoliciesinpubliceducation
viii
Table 6.19: Awareness of school system for replacing absent educators by race
group, province and employer, South African educators 2004 111
Table 6.20: Awareness of educational institution’s policy on sexual relationships
between educators and learners by various demographic characteristics,
South African public educators 2004 114
Table 6.21: School access to a social work service by selected study variables, South
African educators 2004 116
Table 6.22: Attendance of a professional training development programme during the
past two years by various study variables, South African educators
2004 118
Table 6.23: Source of support in role as an educator, South African educators
2004 121
Table 6.24: Source of support provided to public educators for their role in AIDS
work/education, South African educators 2004 121
Table 6.25: Support the DoE should provide to educators to prevent new HIV
infections amongst educators and learners, South African educators
2004 122
Table 6.26: Support the DoE should provide to educators regarding the care of ill
educators and learners, South African educators 2004 122
Table 6.27: The effects/advantages of ARVs on a person living with HIV/AIDS, South
African educators 2004 123
Table 6.28: Support that DoE should provide educators regarding ARVs, South
African educators 2004 123
List of figures
Figure 2.1: Monitoring and evaluation model as used in this study 23
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ix
The overall research project was a collaborative endeavour involving many people from
beginning to end. Although not an exhaustive list, we wish to thank the following people
and organisations for their participation in one way or another in this study:
• Dr Olive Shisana, the Executive Director of the Social Aspects of HIV/AIDS and
Health in the Human Sciences Research Council, for providing overall scientific
leadership as the principal investigator for the entire project.
• The then Minister of Education, Professor Kader Asmal, MP, and his two advisors,
Dr Alan Taylor and Kgobati Magome, as well as the South African Democratic
Teachers’ Union leadership who were involved in the initial development of terms
of reference, as well as the national, provincial and district officials for encouraging
educators to participate.
• The educators of South Africa, without whose generosity and time this main survey
would not have been possible. In particular, we wish to thank the principals of
participating schools for allowing us into their busy school programmes to conduct
the study.
• The Department of Education (national and provincial), the South African
Democratic Teachers’ Union, the National Professional Teachers’ Organisation of
South Africa, the Suid Afrikaanse Onderwysers’ Unie and the South African Council
of Education for facilitating entry into schools.
• The members of the Advisory Task Team, the Technical Task Team, the Ministerial
Committee on Teacher Education and the Education Labour Relations Council
Technical Task Team who guided the project, especially during its formative stages.
• The members of staff of various research programmes in the Human Sciences
Research Council, including: Social Aspects of HIV/AIDS and Health; Surveys,
Analyses, Modelling and Mapping; Employment and Economic Policy Research; and
Assessment Technology and Education Evaluation. In particular, we wish to thank Dr
Mokubung Nkomo (Assessment Technology and Education Evaluation and also of
University of Pretoria) for facilitating initial consultations between the South African
Democratic Teachers’ Union and the Human Sciences Research Council on initiating
the project; Dr Stephen Rule (of Surveys, Analyses, Modelling and Mapping) for
sharing his experience in surveys, especially on executing fieldwork; and Mr Adlai
Davids of the same programme, for assisting in sampling of schools. Finally, but
not least, Mrs Monica Peret for leading the team who did the day-to-day data
management for this study.
• Dr Johan van Zyl for contributing tremendously in questionnaire design and
formatting for the questionnaire used in the main survey.
• Dr Marlene Roefs, the national project co-ordinator, for her tremendous effort in
ensuring the smooth running of the fieldwork in the main survey.
• The provincial co-ordinators: Ms Shantinie Francis, Mrs Nomvo Henda, Ms Lebogang
Letlape, Ms Julia Louw, Mr Nkululeko Nkomo, Mr Ayanda Nqeketo, Mr George
Petros, Mr Shandir Ramlagan, Mr Tsiliso Tamasane, Mr Fhumulani Thaba, Mr Brian
van Wyk, Mr Nhlanhla Sithole and Ms Nompumelelo Zungu-Dirwayi, who spent
months in the field arranging school visits and managing day-to-day fieldwork in the
main survey.
• The nurse-supervisors and fieldworkers, who laboured tirelessly and travelled many
kilometres to gather the data in the main survey.
• The project administrators: Ms Hermien Bolton, Mrs Marizane Rousseau-Maree and
Mrs Yolande Shean of Social Aspects of HIV/AIDS and Health for supporting the
day-to-day running of the project, especially in the main survey.
Acknowledgements
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M&E Monitoring and evaluation
MRC Medical Research Council
Naptosa The National Professional Teachers’ Organisation of South Africa
Natu National. Teachers’ Unions of South Africa
NBI National Business Initiative
NGO Non-governmental organisation
NQF National Qualifications Framework
NSFAS National
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