3.2 POLICY ANALYSIS
3.2.1 CRITICAL POLICY ANALYSIS AND CRITICAL THEORY
Critical policy analysis includes looking at how policy processes are arranged, what the content of the policy is, whose interests the policy serves, how it is implemented and what the outcomes are. In doing critical policy analysis, exploring the values and assumptions which underlie the policy, in whose interests is the particular policy initiative and who are the winners or losers, become an integral part of the analysis.
Therefore, critical policy analysis is, ‘a value laden activity which explicitly or implicitly makes judgments as to whether and in what ways policies help to make things better’
(Taylor et al. 1997:37).
In engaging in a critical analysis of policy on educator post provisioning, the researcher
viewed the analysis from a conflict1 rather a functionalist2 perspective and has, therefore, drawn on the work of a theoretical tradition called critical theory in analyzing policy on educator post provisioning. According to Gibson (1986:44):
Critical theorists in education have three things in common. They begin from a concern to map the inequalities and injustices of education. Next, they claim to trace those inequalities and injustices to their source, showing the educational processes and structures by which they are maintained. Finally, they seek or propose remedies to those injustices.
In using critical theory the researcher has chosen to focus on the following aspects of this paradigm: critique of ideology, critique of instrumental rationality, enlightenment and emancipation.
3.2.1.1 CRITIQUE OF IDEOLOGY
Ideology is not a neutral concept. For critical theorists it is considered a very powerful concept. Ideologies are formed by the social practices and beliefs of the powerful in society and they penetrate everyday life, familiar assumptions and beliefs (Higgs &
Smith 1997:186, Gibson 1986:11). McLaren (2003:79-80) asserts that ideology serves both a positive and negative function. It is to the negative function that he focuses where he links ideology to a theory of domination. Owing to asymmetrical power relationships, some groups are privileged over others. These privileged groups sustain their domination through ideology by maintaining a breach between ‘ideas and reality’ and ‘words and deeds’ (Held 1980:183). In interrogating and deconstructing policy on educator post provisioning, the researcher explores how state ideology, in the form of neoliberalism has impacted on educator provisioning at public schools and has resulted in some sectors of the population maintaining their privileged position whilst simultaneously subverting the principles of equity and redress as espoused by policy.
1 A conflict perspective is based on the premise that society is in continual conflict with some groups dominating others and that everyone competes for power (Claasen &Van Wyk 1999:22).
2 A functionalist perspective is based on the assumption that society is an orderly self-regulating whole in which incremental changes take place to ensure stability and consensus (Claasen &Van Wyk 1999:22).
3.2.1.2 CRITIQUE OF INSTRUMENTAL RATIONALITY
Critical theorists view instrumental rationality as the dominant feature of the modern world. Instrumental rationality represents the preoccupation with means in preference to ends. It focuses on how things can achieve goals, rather than whether the goals are worthwhile. It is concerned with method and efficiency rather than purpose – the most efficient means to a given end (Gibson 1986:7). Critical theorists question ‘efficient in terms of what?’ and why such a value is considered more worthwhile than others.
According to Jones (2003:74), such reasoning in modern society is a consequence of capitalist activity, where a preoccupation with new and ever more efficient means of achieving productive ends becomes the be-all and end-all. This concept of instrumental rationality is useful in this study in analyzing the tension between economic efficiency on the one hand and equity on the other. Are these two terms compatible or are they mutually exclusive from a social justice perspective?
3.2.1.3 ENLIGHTENMENT
Enlightenment consists of the disclosure of the true interests of individuals and groups. It aims to point out who the true beneficiaries are of particular practices and policies.
Young (1989:40) contends that through enlightenment, oppressed groups can ‘select strategies and tactics’ and engage in political action and struggle in order to set themselves free from the forces of oppression. In terms of educator post provisioning, the researcher aims, through critical reflection, to expose the needs and concerns of the different stakeholders in the education system. More importantly, it aims to point out whether policy on educator post provisioning addresses the needs and concerns of all stakeholders. If not, it aims to expose whose interests are served by the current policy on educator post provisioning.
3.2.1.4 EMANCIPATION
Critical theory attempts to reveal those factors which prevent groups and individuals from taking control of or even influencing those factors that affect their lives (Gibson 1986:5, Young 1989:58). Rush (2004:9) asserts that critical theory is not merely descriptive but rather a way to instigate social change by providing knowledge of the forces of social
inequality that can, in turn, inform political action aimed at emancipation (or at least at diminishing domination and inequality). By such revelations it aims to set people free from the dominating and repressive structures of society. In other words, it is emancipatory. Thus, critical theory has a very clear agenda – to transform society (Bertram 2003:116).
In terms of educator provisioning, the emancipatory nature of critical theory will be used to reveal if policy on educator post provisioning has contributed to reproducing inequality and thereby disadvantaging certain groups in society. Through such revelations, it is hoped that this study will galvanize those groups disadvantaged by prevailing policy on educator post provisioning into action for change. Further, this study in itself attempts to serve as an agent of change because at the end of this study the researcher makes certain recommendations in order to improve policy on educator post provisioning.