Modes of Governance and the Limits of Policy

Abstract

The preceding chapters describe the various efforts, initiatives and policy attempts to realise transformation in the South African higher education system from 1994 up to 2000. Chapter 12 (New South African Realities) is to some extent a summary assessment of the findings and discussions of chapters 4 to 11. As these chapters show, and as we will argue here, transformation in higher education was seen by politicians and laymen, policy specialists and ordinary people as an indissoluble part of moving away from apartheid as a state form to a more open, inclusive, equitable and democratic society. This book describes how the transformation project was launched, with great acclaim, consensus and fanfare – through a series of founding documents such as the National Education Policy Initiative (NEPI, 1993), the ANC Policy Document (Centre for Education Policy Development, 1994), the report of the National Commission on Higher Education (NCHE, 1996), and even the first Higher Education White Paper of 1997 – only to seem to veer off track. A loss of course was detected in at least three areas. First, it seemed as if, after 1997, the policy process gradually became less participatory and democratic, and it even seemed to some that we were returning to something of a top-down style of policy imposition reminiscent of an earlier era. Secondly, it seemed as if the state was forsaking the values of equity and social justice in favour of the values of efficiency, effectiveness and responsiveness. Thirdly, even where policy had been implemented as intended (in the National Student Financial Aid Scheme [NSFAS], for example), it was producing effects different from the ones expected and desired. What was producing these contrary effects? Why had the transformation project in higher education come to be so widely seen as an unpleasant surprise and distasteful disappointment?