POLICY ANALYSIS: A TRAVELLER IN SEARCH OF MEANING
3.2 English Language: A Rugged Terrain
C H A P T E R T H R E E
POLICY ANALYSIS: A TRAVELLER IN SEARCH OF
language should be the same as assessed in the mother tongue in level one. Policy acknowledges that language is central to the learning process and that it is through language that thoughts are clarified and communicated. ABET promotes the development of multilingual models of learning because it wishes to contribute to multilingualism in South Africa. It wishes to promote awareness that informal learning and communication takes place in languages other than English, for example, in the workplace. It makes explicit that the constitutional right to learn and communicate in the language of one's choice is an essential aspect of the democratization of society and the principles of integration and access.
Policy promotes all South African languages to the benefit of the learners, and states that English will no longer act as a barrier to learning. In addition, the development of multilingual courses and materials will also assist the learning process. Policy states that the adoption of a multilingual learning model will also have implications for the National Qualifications Framework. It requires that standards are written in all languages and that people have a choice to demonstrate outcomes in the language of their choice. The aim of the curriculum is to develop full competence in at least two languages. What is made clear in ABET policy is that there should be no distinction between first and second language in terms of curricular aims. Policy recognizes the negative connotation of the use of the words first and second language speaker. There is an implied deficit view of language competence, with outcomes in the second language being at a lower level and therefore 'lower grade' as compared to the outcomes in the first language. According to the multilingual model, all languages should be assessed equally at all levels. Policy illustrates, for example that the outcomes assessed in English, as an additional language at Level one should be the same outcomes assessed in the so-called mother tongue at Level one. Policy stresses that the common outcomes approach draws a distinction between teaching and learning methodologies and assessment of outcomes and accepts that for the purposes of teaching and learning, there are differences between first and second language acquisition and the development of literacy skills in either context.
However, at the provincial level it must be noted that language has been viewed
differently from national policy. According to a provincial policy document (A Qualification System and Placement Procedure, 1999: 1.25) the issue of language is contentious:
English is clearly of importance to and progress in the FET
band; if the fundamental language credits are acquired in their mother tongue/ home language (unless the home language is English), access might be limited
The Language in Education policy in South Africa, moves away from its claims, and responds to the demands of globalization and the economic forces, by making the Grade Twelve examinations, which is a vital career exit point to be written in either English or Afrikaans. The hegemony of English over other languages has been demonstrated by its social uses, as well as the use of English as a language in higher education institutions. There are proponents who promote the idea of (indigenous) languages for the citizens of South Africa to be used as resource in an effective manner for the full development of all people in South Africa Alexander (1999). Whilst there are those who promote English as the global language of access.
In South Africa there are eleven official languages. English is one. The ABET Policy advances the right of the learner to choose his or her medium of instruction and the language he or she wishes to study, but the literature reviewed as well national adult basic education and training policy document (A National Adult Basic Education & Training Framework, 1997) reveal that English in the South African context goes contrary to what it professes.
The English language is a karo20, pungent, kuyababa21 hot chillie; I use this mixed metaphoric language to illustrate the richness as well contradictions of the languages in our diverse, colourful South African rainbow nation. I am immensely aware of the richness of the indigenous languages and its invaluable contribution to the nation. I am a proud literate Tamil individual, yet equally
20 Karo: means pungent in the Tamil language,
21 Kuyababa: in IsiZulu means pungent
conscious that without competency in English I will not be able to compete in the market place.
The English language in the South African context is controversial. The Language in Education policy (1999) maps out a plan with much political correctness.
However, the economic realities and the needs of the people in the South African situation reveal that it is not easy to translate policies into practice. I argue that the complex realties of the people who are affected by policy should be given a voice and their needs should be advanced. I will use the critical theoretical perspective to explain how positioning of certain languages gives hegemony to some while marginalizing others. Hutton (1992) explains that the definitions of literacy are much more about what is regarded as possible than what is regarded as ideal. In South Africa, definitions are complicated by the fact that knowledge of a second language, usually English, is as vital as the ability to read and write in an African language. The term literacy is sometimes used loosely to include basic competency in English (Hutton, 1992). Harley et al (1996) also state that it is reasonable to assume that for most South Africans, English is not a home language but is the dominant language of the future. Steinberg & Suttner (1991), in their clarification of the term literacy explain that they use the term to mean basic literacy skills in the person's own language and in English. Once the person can speak, read and write the basics of English, they are functionally literate for the purposes of life in South Africa.
Stromquist (2002: 70) argues that English is by far the main language of the global economy. It is used not only in market transactions but also in science, international politics and even sports. There are about 1,5 billion persons who speak English, and about three billion (one-third of the world) are exposed to it.
However, others:
... see the dominance of English as carrying with it the hegemony of particular ideas and ways of looking at the world. They see the international use of English not as a simple adoption of the lingua franca but as another way to diffuse Western, primarily U.S. ideas (Stromquist, 2002: 70).
Clifford & Kerfoot (1992) note that in South Africa, English is generally considered the language of access. The prevalent use of English in the following areas illustrates its dominance in politics and economics:
• Politics: The English language is used in government and administration
• Legal: The English language is used at the courts and in all legal documents
• Education: The Grade Twelve examinations are set in English and all higher education institutions have instructions through the medium of English
• Science and technology: English is the language for access to international information
• Trade and industry: The English language is used mainly at places of work, trade unions, international and regional trade
• Media: The language of radio, TV, newspapers, magazines and advertisements is English
In recognizing the importance of the English language for the literacy needs of the people in South Africa, Clifford & Kerfoot (1992) look at a policy of regional bilingualism. The preceding discussion revealed that English has been acknowledged as the dominant language in the country.
The language in education policy has recognized the past inequities and articulates the states intention to provide redress by giving all languages equal status. However, the state has made no deliberate attempt to advance the development of African languages by funding language development initiatives and providing infra-structural support of these languages (Cele, 2001). The African languages enjoy political liberation without any political and economic power. Cele (2001: 183) writes:
Lamenting about the shady past of English will not help South Africans to rise above the present occasion of globalization and ever shrinking global boundaries. The recognition of all South African languages as official languages is a major step towards full political liberation of South Africans, but without a deliberate repositioning of English, this policy will
lead back to economic underdevelopment that was historically promulgated by the apartheid regime and denounced by the liberation
movement.
The preliminary findings for adult learners attending ABET in this research have been to improve their English. The theoretical perspectives provide me as 'text traveler' with road maps to explain whether the acquisition of English literacy skills will be in their true interests and will prevent injustices towards certain groups and individuals who may gain greater control over their lives. In the preceding paragraphs I discussed the way English as a language in South Africa is a political hot potato. There are no neat prescriptions as set out in Language in the Education Policy that could be followed. From the literature reviewed, English is given greater cultural capital than the other official African languages in South Africa because of the manner in which society reinforces the dominant culture's language, making it a requirement for the market place. This forces adult learners to acquire English and legitimatize its power as natural. The analysis demonstrates how language, like other social practices, serves particular interests.
Gibson (1986) and Freire (2003) point out that language is often used to exploit, domesticate and dominate. During the apartheid regime, the Smuts Education Act of 1907 made English the official language and teaching of English compulsory:
every child had to learn English at school. In the political landscape of South Africa it would have been unthinkable at that time to have even considered an African language for official purposes (Cele, 2001).
While policy today justifiably articulates redress of past injustices through colonization in South Africa it must also be counter-veiled by the present complex realities of the needs of the change and changing South African landscape given the global demands (Cele, 2001). South Africa presently (2003) stands on a stage as part of the global village of the 21st century competing in a technocratic, highly industrialized world of consumerism. In this context as my preliminary findings revealed, the marginalized people themselves indicate a need for the English language. (Cele, 2001:191) writes:
Without this radical paradigm shift in the medium of instruction, our system will continue to wallow in the abyss of political correctness entrenched in government policies that seek to solve the crisis of three hundred years of cultural misrepresentations in one piece of legislation that ignores realities of our society.
I position the English language within the South African context and reveal how globalization and market-led forces compete in determining the status of English.
The literature reviewed shows the contradictions faced by a society caught up with political correctness, equity, justice, need for transformation from the old apartheid education to a new multilingual multicultural education system. This is reflected in an impressive compendium of new education policies. However, the policies have demonstrated that they are mere symbols and not being translated into practice. It is within this context that a very politically correct, most democratic and liberated Language in Education Policy (1999) is made. The problem is in that there are very few fundamental changes in the South African education system that go hand in glove to support such a system. With no changes being made to the medium of instruction at tertiary institutions, the grade twelve examinations written mainly through the medium of English, examinations in all learning areas in adult literacy written through the medium of English, most textbooks written in English and the dominance of the English language in the global and local economic front, it is no surprise that English is a sought-after commodity by adult learners. Embroiled within these competing and contradictory forces I try to make sense of my critical question in this study.
In the next section, I examine what the South African ABET and education policies espouse and evaluate its implementation.