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Transcript of From laggard to world class
FROM LAGGARD TO WORLD CLASS
Research report no 13
Reforming maths andscience education inSouth Africa’s schools
This project has been funded by the Anglo American Chairman’s Fund, the
AngloGold Ashanti Fund, the BHP Billiton Development Trust, the De Beers
Education Trust, the FirstRand Foundation, the Joint Education Trust, the Liberty
Foundation, Murray & Roberts Holdings Limited, the Shuttleworth Foundation,
and the Zenex Foundation.
PREVIOUS TITLES
1. Post-apartheid population and income trends: a new analysis (September 1995)
2. South Africa's small towns: new strategies for growth and development (May 1996)
3. Cities and the global economy: new challenges for South Africa (October 1996)
4. Durban: South Africa's global competitor? (October 1996)
5. The East Rand: can South Africa's workshop be revived? (June 1997)
6. People on the move: lessons from international migration policies (June 1997)
7. People on the move: a new approach to cross-border migration in South Africa (June 1997)
8. Pretoria: from apartheid's model city to an African rising star? (July 1998)
9. South Africa's 'discarded people': survival, adaptation, and current policy challenges (October 1998)
10. Policy-making in a new democracy: South Africa’s challenge for the 21st century (August 1999)
11. Johannesburg, Africa’s world city: a challenge to action (October 2002)
12. Key to growth: supporting South Africa’s emerging entrepreneurs (June 2004)
Cover photograph by Gisèle Wulfsohn/South Photographs
Produced by Riaan de Villiers and Associates
CDE RESEARCHPOLICY IN THE MAKING
CDE RESEARCHPOLICY IN THE MAKING
13
FROM LAGGARD TO WORLD CLASS
Reforming maths and science education in South Africa’s schools
Abridged
Johannesburg November 2004
T H E C E N T R E F O R D E V E L O P M E N T A N D E N T E R P R I S E
Published in November 2004 by the Centre for Development and Enterprise
Pilrig Place, 5 Eton Road, Parktown, Johannesburg 2193, South Africa
P O Box 1936, Johannesburg 2000, South Africa
Tel 27-11-482-5140 • Fax 27-11-482-5089 • [email protected] • www.cde.org.za
© Centre for Development and Enterprise
All rights reserved. The material in this publication may not be reproduced, stored or
transmitted without the permission of the copyright holder. The report may be quoted and
short extracts used, provided the source is fully acknowledged.
ISSN 1027-1406
CDE Research: Policy in the Making is a vehicle for disseminating research
findings and policy recommendations on crucial national challenges. Each
issue is based on in-depth research, including numerous specially commissioned
background research reports written by experts in the field.
SERIES EDITOR
Ann Bernstein
This report has been written by Ann Bernstein, Dr Tim Clynick, and Dr Robin Lee.
It is an abridged version of a full-length CDE research report entitled From laggard to
world class: reforming maths and science education in South Africa’s schools, written by
Dr Lee and Dr Clynick, with research assistance from Sean Willis. The full report is
available from CDE. Both documents have been edited by Riaan de Villiers.
Background research for this project was undertaken by Helen Perry,
Prof Gilbert Onwu, Prof Sarah Howie, Penny Vinjevold, Prof Charles Simkins,
Dr Robin Lee, Jocelyn Smith, Prof Diane Grayson, Aarnout Brombacher,
Dr Tony Morphet, Pam Watson, Dr Piet Human, Mike Erskine, Ruth Dube,
Makhosi Sigabi, Johnny Philander, Lucky Khumalo, Dudu Mkhize,
Dr Nopi Linkonyane, Dr Tholang Maqutu, Dr David Sirestarajah, and
Denrick Blaauw.
An advisory team helped CDE to manage this project. Its members were
Margie Keeton, Prof Sipho Seepe, Prof Charles Simkins, Dr Nick Taylor,
Penny Vinjevold, and Prof Diane Grayson.
In t roduc t ion 5
Quant i ta t ive research f ind ings 8
Qual i ta t ive research f ind ings 15
In ternat iona l exper ience 20
Poin ts o f depar ture 23
CDE’s recommendat ions 30
C O N T E N T S
Acronyms and abbreviations
CDE Centre for Development and EnterpriseFET Further education and trainingFETC Further education and training certificateGET General education and trainingGETC General education and training certificateHG Higher gradeNdoE National department of educationNGO Non-governmental organisationNSMSTE National Strategy for Mathematics, Science, and Technology Education NTF National Task Force on Maths and Science EducationOBE Outcomes-based educationSC Senior certificateSG Standard gradeTIMMS-R Third International Maths and Science Study
5
INTRODUCTION
The number of higher-grade Senior Certificate passes in maths and physical science in
South Africa was lower in 2002 than it was in 1991. Given the massive growth in the num-
ber of Senior Certificate candidates since then, it is clear that a national crisis has devel-
oped in maths and science education, with serious implications for economic growth. The
poor quality of schooling in these subjects is probably the single biggest obstacle to African
advancement in this country. – Main report
Education planners, educators, and parents in many countries are concerned about the
poor quality of mathematics and physical science education in their schools. Politi-
cians, economists, business people, and universities are concerned about the small num-
bers of learners leaving school with high enough grades to enrol for courses based on
maths and science at tertiary institutions. And everyone is concerned about the small
numbers of capable students being trained as educators in these two subjects.
South Africa is no exception. As long ago as the 1970s, key figures in the private sector
began funding maths and science projects in response to the disastrous impact of ‘Bantu
education’ on African learning and skills levels. After South Africa’s transition to democ-
racy in 1994, the education authorities launched numerous initiatives aimed at improv-
ing school-based maths and science education. In 1999, presidential priority was given to
these subjects. In June 2001, the national department of education (NDoE) drafted a
national strategy for maths, science and technology that resulted in the launch of the
Dinaledi (or ‘102 schools’) programme in September 2001. Provinces have implemented
their own initiatives, and the private sector and international funders have contributed
projects of their own.
Good work is being done, and initiatives are being successfully implemented. However,
the maths and science education system is still failing to deliver enough school-leavers
equipped with HG maths and science to meet the country’s needs. While in 1991 South
Africa produced 20 667 HG SC maths graduates, in 2003 it produced 23 412 – the first
time in over a decade that numbers exceeded the 1991 figure.
It is clear that a new approach is required if our schools are going to deliver in this vital
area. Whereas, over the past decade, the education authorities have generally tried to
change the whole maths and science education system at once, the private sector has con-
centrated on individual projects. Neither approach is achieving the desired goal of equip-
ping the school-based system of maths and science education to realise the full potential
of South African learners, and meet the country’s ambitions for the next decade.
A question of national concern
South Africa is significantly disadvantaged globally and in terms of its national priorities
by the poor performance of its maths and science education system. This is particularly so
in view of the fact that these subjects are increasingly important to any economy that
wishes to compete in the global economy. Competitive economic activity in the 21st cen-
tury will inevitably involve the extensive use of technologies that are ultimately based on
maths and various branches of science. South Africa cannot hope to develop these tech-
The maths and science
education system is
failing to deliver enough
school-leavers equipped
with HG maths and
science to meet the
country’s needs
Greater African
participation in the
economy is being held
back by the poor quality
of our schooling system
6
F R O M L A G G A R D T O W O R L D C L A S S
nologies – or even to productively apply technologies developed by others – without a large
and growing group of citizens with a sound maths and science education. And it cannot
hope to produce this core of specialists without effective school-based education in these
subjects by well-qualified, highly committed, and adequately remunerated educators.
Government policies in the areas of economic growth, black economic empowerment,
skills development, and other critical areas assume that the education reforms of the past
10 years have already dramatically increased the supply of black SC maths and science
graduates to higher education institutions and the public and private sectors – but this is
not the case.
Key government activities also require citizens capable of grasping the principles
underlying developmental policies and programmes. Citizens of a 21st-century democ-
racy cannot hope to contribute to or benefit from technology without a reasonable level of
maths and science education.
Private sector concerns in this area are equally fundamental. Most formal jobs in the
economy now require some competence in at least maths, and a higher level of mathe-
matical proficiency is, of course, essential in the finance, technology, and other sectors.
However, work in manufacturing, construction, retail, the services sector, and commer-
cial farming are increasingly dependent on maths literacy as well. Greater African partici-
pation in the economy is being held back by the poor quality of our schooling system.
The country’s top educational priority
International evidence, the opinion of domestic educational experts and practitioners,
and the views of parents and learners all confirm that maths and science are the compo-
nent of the education system that needs to be reformed most urgently. This view is rein-
forced by the fact that the private sector has committed substantial resources to maths
and physical science projects over the years, with considerable success at the level of indi-
vidual projects, but without having the critical mass to change maths and science per-
formance or participation. As yet, only a few large-scale ways to co-operate with govern-
ment in improving maths and science have been found and implemented successfully.
It is in the context of these realities that CDE has conducted a major privately funded
study of South Africa’s maths and science schooling system. After three years of intensive
research, CDE has produced a substantial report which, in many respects, represents the
most exhaustive analysis of this system yet produced. The study was prompted when some
of the country’s largest corporations expressed concern about the dwindling supply of
school-leavers with HG maths and science, particularly Africans, available to take up bur-
saries on offer for higher education.
The CDE study has been funded by ten donors: the Anglo American Chairman’s Fund,
the AngloGold Ashanti Fund, the BHP Billiton Development Trust, the De Beers Education
Trust, the FirstRand Foundation, the Joint Education Trust, the Liberty Foundation, Mur-
ray & Roberts Holdings Limited, the Shuttleworth Foundation, and the Zenex Foundation.
Research conducted for the project
Extensive research was conducted for this project. Twenty-seven background research
reports were written, and hundreds of interviews were conducted with national and
provincial education officials, academics and other analysts involved in education, repre-
We have continually
looked for what is
working, trying to
identify a sound
foundation on which
an improved system
could be built
7
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
sentatives of relevant NGOs, school principals, educators, learners, and others. The
research components include:
• a statistical analysis of performance trends in the SC examininations in maths and
physical science, 1991-2002;
• a more detailed analysis of the results of SC examinations in maths and physical science
in 1998, 2000, 2001, and 2002;
• compiling a national database of SC maths and science performance and participation
by individual schools across the nine provinces, and developing a set of criteria for
understanding and comparing the relative performance of all schools by various rele-
vant categories (home language, location, gender, etc);
• in-depth case studies of 13 schools in five different provinces which consistently per-
form well in SC maths and science;
• an examination of government and private sector initiatives in support of improved
maths and science learning and teaching;
• a review of the current system in the light of the competencies and morale of educa-
tors, curriculum reform, and the present SC examination; and
• a review of international experiences of system change, specialist schools, incentives
for educators, and how our performance in maths and science schooling compares
internationally.
The body of material produced in the course of our research is a valuable national
resource, which is now available to government and other interested parties. A number of
the analytical tools developed in the course of our research could play a valuble role in
helping policy-makers and planners to design new policy initiatives and programmes, and
monitor and assess their progress.
CDE’s approach
In undertaking this study, CDE has drawn on its years of experience in analysing and
assessing complex national policies and large programmes of delivery. We have been
guided throughout by the realities of reform and the difficulties of implementation in a
developing country recovering from the terrible legacy of apartheid. We have continually
looked for what is working, trying to identify a sound foundation on which an improved
system could be built. In the international literature, this is described as ‘seeking virtue’ in
an existing system.
It is a very different approach from one that says, everything is wrong with a given sys-
tem, and we must change it in its entirety. Experience over the past ten years in many sec-
tors of South African society has emphasised the importance of identifying ‘what works’
in this country, and incrementally building on that base in order to improve delivery in a
sustainable and more equitable manner. This philosophy of change has informed our
research as well as our final report (see box: In the midst of a national crisis, ‘virtues’ can be
identified, p xx).
In this abridged version of our full-length report, we will briefly review our key research
findings, both quantitative and qualitative; draw out key lessons from international expe-
rience; formulate points of departure towards a new approach; and put forward a set of
achievable, practical recommendations aimed at significantly increasing the numbers of
SC maths and science graduates within a limited time frame, which will, in turn, provide a
base off which to further expand access to quality education. If we act decisively, and with
If we act decisively, the
performance of the maths
and science education
system could be
dramatically improved
in a short period
8
F R O M L A G G A R D T O W O R L D C L A S S
the right mix of interventions, the performance of the maths and science education sys-
tem could be dramatically improved in a short period.
QUANTITATIVE RESEARCH FINDINGS
South Africa has a serious problem in the important maths and science compo-
nent of its education system.
In order to gain an accurate picture of the system’s performance, three factors need to be
considered: trends in overall enrolment, trends in pass rates, and trends in the absolute
numbers of passes produced. Ideally, trends should improve in all three areas, but espe-
cially in pass rates and numbers at the HG level. These school-leavers can enter higher edu-
cation, can start training as maths and science educators and, even if they are immedi-
ately employed, will be better equipped for on-the-job training. In other words, the
quantity of high-quality passes is the single most important trend. For the purposes of our
study, figures were compiled for a 12-year period, from 1991 to 2003.
Enrolment
Over the 12 years in question, total enrolment for SC mathematics increased from
135 659 to 258 323 (or 90,4 per cent). However, this growth took place at SG level only;
while SG enrolment increased from 82 028 to 225 033 (174,33 per cent), HG enrolment
plummeted from 53 631 to 35 959 (a decline of 32,95 per cent). HG mathematics is
essential for many higher education qualifications.
Similarly, while total enrolment for SC physical science increased from 84 019 to 151
791 (80,66 per cent), SG enrolment increased from 33 065 to 99 711 (174,34 per cent),
and HG enrolment only marginally from 50 954 to 52 080 (2,2 per cent).
CDE’s research has identified numerous positive elements, or
‘virtues’, in the existing maths and science education system
that can used as building blocks for a reform strategy. These
include:
• a national understanding that a problem exists;
• a commitment by government and private business to
allocate resources to addressing it;
• presidential interest in achieving delivery in this area;
• private and NGO sectors with a long history of concern
over and engagement with maths and science education;
• considerable potential in the current system to achieve
In the midst of a national crisis, ‘virtues’ can be identified
more HG passes;
• sound learning and teaching in some of South Africa’s
poorest schools and communities;
• a public recognition of excellent achievements under
adverse local circumstances;
• provincial energy, and innovative programmes;
• progress on a sound database of SC results, correlated
with other relevant variables; and
• an acceptance, signalled by the state-run Dinaledi
programme, that maths and science education needs
specialised attention. CDE 2004
One of the most worrying
aspects of maths and
science education is the
small proportion of
African learners who
pass these subjects
in the HG
9
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
Pass rates
The total pass rate in SC maths increased slightly from 47,9 per cent to 49,6 per cent.
While the SG pass rate declined from 48,7 per cent to 44,7 per cent, the HG pass rate
ncreased from 38,6 per cent to 66,1 per cent.
Similarly, the total pass rate in SC physical science increased slightly from 64,6 per cent
to 67,0 per cent. While the SG pass rate dropped from 67,1 per cent to 62,0 per cent, the
HG pass rate increased from 45,4 per cent to 50,1 per cent.
The increase in the HG maths pass rate, for example, seems impressive until one recalls
that enrolment in that subject dropped hugely over the same period. This shows that these
two sets of figures should be related to one another. When they are, they reveal a consis-
tent inverse relationship between enrolment and performance; the more learners enrol for
any of these three subjects, the worse their pass rate, and vice versa. Experts say this
demonstrates the widespread approach by school principals and educators pursuing good
SC results to discourage all but the most talented learners from enrolling for HG maths or
science. Thus the improved pass rates in HG maths and science are being achieved at the
expense of participation, and the improved participation in SG maths and science are not
being translated into results.
Number of passes
Perhaps the most direct measure of performance is the number of passes at SG and HG
level produced by the system every year. In respect of maths, the total number of passes
over the 12-year period has grown from 64 941 to 128 119 (or 97,28 per cent). However,
once again, the growth has only been in SG; while SG passes have increased from 39 028 to
99 426 (154,75 per cent), HG passes have only increased from 20 677 to 23 412 (13,22
per cent). In fact, in 2003 the system produced only 2 735 more HG maths passes than it
did in 1991 – only a fraction of what the country needs.
Similarly, while the total number of passes in phyical science has increased from
84 019 to 151 791 (or 80,66 per cent), SG passes have increased from 22 216 to 61 756
(177,97 per cent), and HG passes from 23 109 to 26 067 (12,80 per cent). Again, in 2003
the system produced only 2 958 more HG science passes than it did in 1991.
The pass rates in all four subjects have improved over the past three years. However,
experts attribute this largely to the introduction of the 25 per cent ‘continuous assess-
ment’ component of the SC, undertaken by schools themselves and not by independent
examiners.
African learners
One of the most worrying aspects of maths and science education is the small proportion
of African learners who pass these subjects in the HG. Our research shows that in 2002
only 4 637 African learners graduated in HG maths, amounting to 13,14 per cent of all SC
graduates, and 23,42 per cent of all HG maths graduates. Similarly, only 7 129 African
learners graduated in HG physical science – 14,06 per cent of all matric graduates, and
30,42 per cent of all HG science graduates.
In a comparison of the
performance of grade 9
learners in maths and
science in ten developing
countries, South Africa
scored lowest in
both subjects
10
F R O M L A G G A R D T O W O R L D C L A S S
Educators
Fewer SC graduates are enrolling for higher education courses leading to teaching qualifi-
cations in these subjects, so the entry of newly qualified maths and science educators is
not even keeping pace with retirements, retrenchments, and losses to other sectors, never
mind actually increasing the country’s resources in these subjects. In 2000, the number
of students at teacher training colleges was 56 per cent less than in 1994 (since then,
teacher training colleges have been amalgamated with universities). And, between 1996
and 2000, the number of education degrees awarded at universities and technicons
declined by 5,4 per cent.
The key issue is whether the country has ‘turned the corner’, and we can expect more
learners to achieve better marks in maths and science – particularly in the higher grade.
Most analysts do not expect this to be the case.
If we look at the system’s performance over the entire period from 1991 to 2003, what
can we say? The data as a whole show a sharp downward trend in the period to 2001, and
then a slight upturn, the causes of which are not entirely clear, and the duration of which
is still unpredictable. Nevertheless, over the entire period the increase in enrolment and
passes remains negligible for a system that is expanding overall, and a country that des-
perately needs major improvements. It is entirely unsatisfactory to be standing still over a
12-year period, whatever the reasons.
South Africa is in a worse position than virtually any other comparable develop-
ing country.
In order to assess South Africa’s performance in maths and science, this has to be com-
pared to those of other developing countries. In a comparison of grade 4 learners in 12
developing countries, conducted in 2000, South Africa scored lowest in numeracy, and
second lowest in literacy in English – a factor crucial to success in maths and science. (In
most of the other countries, As in South Africa, English is a second or third language, but
the most common language of learning and teaching.) In a second, related, study com-
paring the performance of grade 9 learners in maths and science in ten developing coun-
tries, South Africa again scorest lowest in both subjects.
South Africa’s challenge in maths and science has very specific origins related to the
country’s history of apartheid education. These are discussed in detail in the main report.
Yet the country is by no means alone in facing major challenges. CDE ’s international
research identified very few countries that are satisfied with their achievements in maths
and science education. Nevertheless, available comparative data indicates that South
Africa is worse off than virtually any other country. (Of course, there may be some coun-
tries that have not participated in comparative studies, and may have even less effective
education systems than ours.)
In 1998–9, the Third International Maths and Science Study (TIMMS-R) was conducted
in 38 countries. In a standardised test administered to grade 8 learners, South Africa per-
formed worst of all the other participating countries.
Using data drawn from the TIMMS-R study, CDE compared South Africa to ten similar
developing countries – Chile, Czech Republic, Indonesia, Korea, Malaysia, Morocco,
Philippines, Thailand, Tunisia and Turkey – which it thought would be a fairer compari-
son than the whole group of countries that included several developed nations. However,
Only 14 per cent of
schools in 2001 reported
that their maths and
science educators had the
minimum qualifications
required by the NdoE
11
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
even in this totally comparable sample, South Africa’s grade 8 learners were still the worst
performers, even though they were 1,1 years older on average than all other participants.
Most of these countries have similar social problems to ours which also impact on their
educational systems, such as a multiplicity of languages, massive income differentials,
sharp urban–rural divisions, and recent histories of conflict. Therefore, the factors that
have been used to explain our poor performance are not unique to this country, and other
countries with similar disabilities seem to be overcoming them more effectively than we
are.
The self-report elements of the TIMSS-R study give some possible reasons for our poor
performance. Our school year is substantially shorter than those of all the other countries
studied. We have the highest absentee rates for educators and learners. The time devoted
to instruction in maths and science is the least of all countries. Maths and science educa-
tors and learners spend significantly more of this time on repetition and homework than
their peers who spent more time clarifying key concepts or making steady progress
through a systematic learning curriculum or programme in the classroom. Effective utili-
sation of available resources is well below the average of comparable countries. And coun-
tries whose maths and science classes are as large as – and even larger than – our own
perform significantly better than we do.
In brief, South Africa faces a major challenge in bringing its maths and science educa-
tion system up to international standards.
Poor performance and low participation is a national issue, but this problem
manifests itself differently in every province and in every school.
CDE’s statistical analyses and development of SC maths and science results has made it pos-
sible to analyse participation and performance in these subjects so that we can identify the
problem nationally, provincially, and in individual schools. The research confirms that
these problems manifest themselves in different ways in every province and nearly every
school in the country.
Our research on school performance reveals several dimensions to this feature of the
maths and science schooling system. According to data in 2000:
• Almost one fifth of secondary schools did not offer SC maths and science at all – in fact,
the number of schools in this category appeared to be growing (by 7,3 per cent from
1998 to 2000)
• About one third of secondary schools offering maths and science at either SG or HG
achieved pass rates of 0–19 per cent.
• Only about half (2 929) of all secondary schools offered HG maths.
• Of these, 1 552 (or 54 per cent) achieved a pass rate of only 0-19 per cent. Total passes
achieved by these schools – 1 013 – constituted only 5 per cent of the total.
• At the other end of the spectrum, 701 (or 24 per cent) achieved pass rates of 80-100
per cent. Total passes achieved by these schools – 11 569 – constituted no less than 63
per cent of the total. This shows that there is a small core of good schools which consis-
tently perform at a very high level.
Very different trends emerge once the analysis goes beyond simple pass/fail grades, as pro-
vided in percentages by official data and debated in the media. Indeed, simple pass/fail
rates actually conceal a far more important trend, namely that the numbers of HG passes
have been declining for some time.
A large number of
learners with the
potential to succeed in
maths and science are
not getting the
opportunity to study
these subjects
12
F R O M L A G G A R D T O W O R L D C L A S S
Provincial variances are also significant; those provinces that had to integrate several
apartheid-era education departments (typically those provinces incorporating former
‘homeland’ territories) are most disadvantaged. The research has therefore underlined
that, even in these two subjects, we are dealing with a diverse and complex system, requir-
ing different policies and strategies in different provinces, different regions within
provinces, and in different schools.
Three key factors have emerged as major determinants of success in SC maths
and science.
Educator knowledge: The most important variable is the educational qualifications (content
knowledge) of educators, the pre- and in-service development of their teaching skills, and
their length of experience. Variations in these factors correlate significantly with varia-
tions in results, and indicate that any major intervention must first be directed towards
educators. This is an urgent priority, as only 14 per cent of schools in 2001 reported that
their maths and science educators had what government considers the minimum level of
qualification (SC plus 3,5 years of higher education). Given the shortage of suitable educa-
tors, fewer periods are allocated to these subjects in the school timetable, further com-
pounding the problem.
Language competence: The next variable is competence in one of the languages used for
instruction and examination purposes (mostly English). There is a significant statistical
correlation between marks achieved in the SC in the language of instruction and examina-
tion and achievement in maths and science. Empirical investigation in the 13 schools
studied by CDE confirms this correspondence, and the examiners, moderators, and mark-
ers who participated in the workshops on the SC examination agreed that this was the
case. The evidence is so strong that we will propose not simply maths and science reforms,
but maths, science, and language reforms.
School and classroom environment: The third significant variable is the nature of the school.
A specific set of school characteristics emerges very clearly as a precondition for success.
This finding has several dimensions. Statistically, the higher the number of candidates in
SC maths and science at a given school, the higher its success rate. Therefore, peer pressure
and teamwork obviously help. But the management of the school, standards of discipline
and orderliness (both physical and psychological), the commitment of educators, and par-
ticularly what happens in the classroom also come into play.
Many more learners could pass SC maths or science in the higher grade, but do
not enrol for either of these subjects.
Our research shows that a surprisingly large number of learners who could succeed at SC
maths and science do not enrol for these subjects at all, or enrol in the SG when their
marks indicate they could succeed in the HG. For example, our research shows that:
• In 1998, 41 per cent of learners who passed SG maths could have passed HG maths (this
calculation is based on an analysis of their aggregate SC mark). In 2000, the correspon-
ding figure was 56 per cent.
• In 1998, 50 584 SC candidates did not study maths at any level because they believed
or were advised that their aggregate mark was not high enough to support a pass in the
subject. In 2000 the corresponding figure was 56 195. However, their overall marks
CDE’s quantitative
research suggests that a
single, undifferentiated
policy to ‘improve maths
and physical science
education’ is
inappropriate
at this stage
13
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
suggest that they would have passed had they enrolled for these subjects. The numbers
are high: 53 283 more learners could have passed maths in 1998, and 49 439 in
2000. Some of these learners even had the potential to pass HG maths: 3 644 in 1998,
and 3 728 in 2000.
A similar if less dramatic pattern is revealed for physical science candidates. The implica-
tions are twofold: first, the country is committing major resources to huge numbers of
learners who, under current circumstances, have little if any chance of passing SC maths
and science, and should be guided on to alternative study paths. Simultaneously, a large
number of learners with the potential to succeed in maths and science are not getting the
opportunities to study these subjects which they deserve, and the country needs.
Whatever the reasons for this, South Africa cannot afford to continue to ignore this
wasted potential. This issue can be addressed immediately, as our recommendations indi-
cate.
There are too few excellent schools and too many bad schools in South Africa.
As we have shown our analysis of individual school performance reveals that:
• only half of all secondary schools offer HG maths;
• fewer than 20 per cent of schools with maths and science candidates attained pass
rates higher than 80 per cent in each subject;
• 24 per cent of schools offering HG maths achieved 63 per cent of the total number of
national passes.
• More than half of the schools offering HG maths – 1 552 – produce just 5 per cent of
the total number of passes.
• Between these two extremes are a further 676 schools with variable rates of success
ranging from a 20 per cent pass rate to close to 79 per cent. Together, they contribute
32 per cent of all HG maths passes.
What this means is that the system is highly skewed and highly vulnerable to any prob-
lems that may arise in a small number of schools. Resources need to be targeted carefully
and effectively. They must go to the top performing schools to ensure that their perform-
ance is maintained and that the largest possible number of learners can benefit from their
capacity to deliver. Then, schools near the top of the next category (pass rates of 60—79
per cent) can be identified and helped to move up to the 80 per cent plus category.
Attaining these results in schools arbitrarily ranked by performance remains a chal-
lenge, as all schools are different, and the causes of poor performance also differ. However,
ranking schools by performance relative to other schools will allow more specific sets of
appropriate interventions to be generated and implemented. In general, therefore, the
quantitative data generated by CDE makes it possible for resources to be directed strategi-
cally to various levels of achievement, so that excellence can be sustained and extended at
the same time that grave deficiencies are receiving attention.
There are many areas in which it is not necessary to act: reforms need not
change every part of the system at once.
CDE’s quantitative data helps to identify areas in which it is not necessary to act – for
instance, that of gender. A single national programme to increase female participation in
maths and science is not indicated. However, as in other respects, the data show that con-
There are many problems
in the public education
system, but there is no
general or fundamental
breakdown of our
schools or of maths and
science education
14
F R O M L A G G A R D T O W O R L D C L A S S
ditions vary in respect of gender participation as well, and that a programme aimed at
increasing the number of African female learners is urgently required in some provinces.
Similarly, under present conditions, access to a science laboratory is not correlated with
consistently high levels of success. This is not to say that this resource is not ultimately
desirable; however, new resources will be more immediately productive if they are directed
towards better educators and more textbooks.
Other kinds of interventions in specific provinces, regions, or schools might also be
needed, and CDE’s school performance index and other data now enable these to be identi-
fied down to the level of individual schools.
Conclusions from the quantitative research
CDE’s quantitative research suggests persuasively that a single, undifferentiated policy to
‘improve maths and physical science education’ is inappropriate at this stage. Any reform
programme must be based on the realities of maths and physical science performance and
participation patterns in individual schools. We require targeted, focused initiatives that
will build systematically on the existing ‘virtues’ in the schooling system.
There is a large pool of SC learners who have not enrolled for these subjects, but could
do so. It includes learners who are currently attending schools with non-existent or inade-
quate maths and science teaching capacity; it also includes those candidates enrolling at
SG when a significant percentage could pass at HG. Urgent steps are required to address
this wasted potential.
Many schools do not have the capacity and resources to teach maths and physical sci-
ence efffectively; however, a generalised support strategy for all schools is not called for.
Rather, the core of performing and now improving schools (many of which are located in
disadvantaged areas) that have always managed to generate significant numbers of HG
passes ought to be helped to maintain their remarkable performance.
Other schools that are on the brink of success due to hard work and effort should be
identified and helped to achieve specific goals. In both cases, building on ‘virtues’ identi-
fied in the system will achieve quicker and better results, and give much-needed momen-
tum to improving the performance of the education system as a whole.
Once we start to consider actual reforms, we will need to distinguish between maths
and physical science. Physical science is within the reach of many more candidates than
is maths. With better focus on the language of instruction and examination, improved
performance is more likely to follow for candidates in science as it is learnt through
description, supplemented by some observation. Better mathematics performance how-
ever must come from both improved conceptual and analytical skills: choices will there-
fore be required in terms of priorities which will have an impact on where resources are to
be applied.
We believe priority should be given to retaining effective and experienced maths, physi-
cal science, and English educators, while gradually expanding the supply by creating a
virtuous cycle of increasing numbers of maths and science HG passes, more graduates
entering higher education, and more suitably qualified maths and science educators. In-
service training programmes or professional development programmes should comple-
ment this strategy by improving current educators’ content knowledge.
CDE has serious concerns
about maths and science
education in grades 10
to 12 in the interregnum
before the introduction
of FET
15
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
QUALITATIVE RESEARCH FINDINGS
There are many problems in the public education system, but there is no general or funda-
mental breakdown of our schools or of maths and science education. This was confirmed
by our qualitative research, which also identified a number of ‘virtues’ in the public edu-
cation system. This is an obvious yet still surprising finding. We believe these virtues
should serve as the building blocks of any strategy aimed at improving maths and science
education. Whatever shortcomings exist can be remedied. We have derived this insight
from a number of important analyses.
Government initiatives
Our full-length report examines national and provincial government initiatives to improve
maths and science education since 1994, and we conclude that a concerned government
has invested significant resources, thought, and effort in this field. The level and quality of
this concern is an important virtue. However, these initiatives have not yet produced the
results commensurate with the time, energy, and resources invested in them. It is essential
to pinpoint the reasons for this. In brief, we believe these are: discontinuities of policy; too
many and overambitious policy changes; a lack of an overarching vision; and failures in
implementation (see box: Government initiatives, 1994–2003, p xx).
Some government initiatives, notably the National Strategy for Mathematics, Technol-
In general, government initiatives have been characterised
by:
• Grandiose policies: Attempts to change the whole
system, or large parts of it, all at once. All the
international research consulted by CDE shows that this is
a futile and ultimately counterproductive approach.
• Policy discontinuity: New policies conflict with,
diverge from, or abruptly discontinue initiatives already
launched, sometimes by the same department
• Undifferentiated strategies: Important subjects
such as maths and physical science are treated as if their
context and national importance are exactly comparable
to all other subjects; provinces are treated as if they are
all the same; and differentiated approaches to educators
and funding are positively discouraged.
• A lack of political will: Government has to establish
what its priority areas are in maths and physical science
education, and stick to its guns. For example, if planners
pander to local political considerations in selecting
Dinaledi schools, it will undermine this important
experiment in specialist maths and science schools.
Government initiatives, 1994-2003
• Inattention to maths and science educators as
a specific group: Real improvements in learning and
teaching have been slow in coming because of the absence
of a mechanism for testing educators’ content knowledge,
and of ongoing professional development. Also, despite
efforts to limit personnel costs, space must be created for
new entrants to the profession in these subjects, and ways
found to attract and retain new teachers.
• An inability to generate professional pride
and motivation: Reforms must pay attention to the
process of change; ie, educators should experience
change as important and something that makes a
difference to their lives as professionals; and should be
motivated by incentives to enter and remain in the
profession.
• Poorly planned, too rapid implementation:
Sufficient time must be allowed for maths and physical
science innovations to take effect; clear and achievable
outcomes must be identified; sufficient resources should
be allocated to achieving them; and progress should be
monitored. CDE 2004
Educators have not been
adequately trained in
how to administer
continuous assessment,
and the process is not
adequately monitored
and controlled
16
F R O M L A G G A R D T O W O R L D C L A S S
ogy and Science Education, have reported positive results. The Dinaledi (or ‘102 schools’)
programme is an important experiment which, though conceptually advanced, has not
been well implemented (see box: The Dinaledi programme, p 21). We are convinced that
improvements can be introduced without losing the gains that have already been made.
The new FET system
Our main report details the steps taken by the NdoE to establish a new school-based educa-
tion system. Significant design and implementation challenges remain in the area of the
new FET curriculum and the FETC that will finally replace the SC examination in 2008.
When the new FET syllabus is eventually implemented, beginning in grade 10 in 2006,
it will be a superior qualification to the present SC in many respects. The current HG and SG
maths will be replaced by two new subjects called mathematics and mathematical literacy,
and all FET candidates will have to study one of them. Mathematics is meant to be equal,
or even superior to, the current HG maths. However, if the current versions of the National
Curriculum Statements are taken as a guide, it appears that this subject may well be
beyond the grasp of many candidates who would formerly have taken SG maths, as well as
that of many educators, thus raising the question of the country’s capacity to implement
the new syllabus. Maths literacy, on the other hand, will be an elementary subject quite
different to SG maths in the old system. These factors may well dramatically reduce the
numbers of maths graduates who go on to institutions of higher education.
CDE has serious concerns about maths and science education in grades 10 to 12 in the
interregnum before the introduction of FET. Learners proceeding to grade 10 from 2004
onwards will have come through an OBE system based on Curriculum 2005, but will
revert to the old secondary school syllabus until the new FET curriculum starts in grade 10
in 2006. Learners and teachers in this particular secondary school cohort will have to
adjust their expectations of each other in the classroom. This situation will pass over time;
however, since maths or maths literacy will be compulsory subjects in the FET band, the
already inadequate supply of appropriately qualified educators will be overwhelmed by
the new demand. With potentially declining numbers of high-level FETC graduates pro-
ceeding to higher education, the supply of maths educators will dwindle further.
The SC examination
At present, the school-based system of maths and physical science education still culmi-
nates in the SC examination. This will begin to change in 2006 when the new FET curricu-
lum will be introduced in grade 10, and move up year by year thereafter. The first FETC
examination, replacing the SC examination, will take place in 2008.
CDE examined ongoing research in this field, as well as the benchmarking exercise
entered into by the NdoE with the Scottish Education Authority in maths, physical sci-
ence, and other subjects. It then sought the views of those at the ‘coal-face’ on whether
the existing SC examination or marking procedures are creating, or contributing to, the
current low pass rates.
Moderators, examiners, markers, and educators were invited to four workshops to dis-
cuss the SC maths and physical science exams. The workshops confirmed our identifica-
tion of positive elements in our present system. The SC examinations are fulfilling a valid
function, at the correct level, and do not require immediate wholesale intervention. The
Interviewees agreed that
the poor quality and
shortage of educators
was one of the prime
causes of the current
problems
17
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
present system could be improved, when the opportunity presents itself. But, given that
other aspects of the system do require urgent attention, there will be great virtue in keep-
ing the SC exams as stable as possible.
While the participants did have some reservations, it emerged quite clearly that the
level of failures in SC maths and physical science was not attributable to the nature or
standard of the examination itself, its moderation or, with some reservations, avoidable
variations in marking.
CDE has therefore concluded that SC learner assessment is not really part of the prob-
lem, and not an area for wholesale crisis intervention. The present system can be
improved, and curricula could and should be systematically upgraded and modernised..
At the same time, steps should be taken to ensure that future SC exam papers are of the
highest possible standard in terms of coverage, levels of difficulty, and their capacity to dif-
ferentiate between candidates.
However, continuous assessment emerged as an area of concern, and reports that have
reached CDE since the interviews and workshops show a rising level of negative comment.
The principle of non-examination-based assessment can be supported, on grounds of pro-
gressive pedagogy. But how such assessments are made is a key issue. The weighting of 25
per cent of total grade is significant, and can make all the difference between passing and
failing, and one symbol and another. Yet it appears that educators have not been ade-
quately trained in how to administer continuous assessment; that the process is not ade-
quately monitored and controlled; and that provinces do not take the process equally seri-
ously. This area requires urgent attention.
Interviews with educators, education officials, and other experts
CDE also interviewed maths and science educators, officials, and other experts. The inter-
views revealed their belief that the government had a responsibility to take the lead in this
field. They acknowledged that the government had acted to improve the system, and also
that progress had been made. In fact, most believed that too much was being tried at once,
leading to what one interviewee described as ‘policy fatigue’. They felt that fewer initiatives,
centred on the existing strengths of the system, would be more appropriate; that officials,
school administrators, and educators should be given enough time to implement them
properly; and that their outcomes should be assessed before more changes were made.
Respondents unanimously commended the government for introducing the National
Strategy for Mathematics, Physical Science, and Technology. However, they felt that this
important initiative was being undermined by an excess of other education initiatives,
which were not properly co-ordinated or harmonised with maths and science strategies or
programmes. Policies were not properly prioritised, and many had had unexpected nega-
tive consequences. They expressed concern about unco-ordinated changes in curricula,
particularly in the FET band that had, for example, resulted in a situation where learners
who had been exposed to OBE up to grade 9 had to revert back to older-generation curric-
ula in grade 10, as OBE-based curricula and trained educators were not yet available. Simi-
lar comments were made about educator redeployment, and the implementation of con-
tinuous assessment.
Interviewees agreed that the poor quality and shortage of educators was one of the
prime causes of the current problems. Yet all agreed that educators were also central to
resolving those problems. Producing more and better trained educators would take a long
The case studies tell us
that success in maths and
physical science in South
African schools is based
on the most widely
recognised and most
conventional
performance factors
18
F R O M L A G G A R D T O W O R L D C L A S S
time, and it would also be difficult to retain them. The quality of the system could not
change more quickly than this issue could be resolved. Other causes of the current prob-
lems cited were: most practising educators had been educated at low level colleges of edu-
cation and not at universities; the lack of differential salaries to counter the high demand
outside education for graduates with maths and science qualifications; payment by gen-
eral qualification and years of experience only; poor working conditions; a lack of learn-
ing resources for maths and physical science; and pressures to produce ‘matric results’. A
more flexible and innovative policy was needed that would allow school governing bodies
to offer maths and science educators additional incentives, without adding to general
expenditure on personnel.
Finally, respondents were asked what practical steps could be taken to improve maths
and physical science education. At the provincial department and school district level,
they identified: improved monitoring and support by curriculum advisors and officials;
appropriate in-service courses (preferably focused on content knowledge); and a more per-
sonalised, targeted, differentiated, and less bureaucratic approach by officials. At the
school level, they identified: strong leadership; good management; a results-oriented cul-
ture; reasonable class sizes; confident educators; a supportive environment for learners;
better and earlier diagnostic assessment; and strong parental and community support. In
the classroom, they identified: the effective planning and pacing of work; stressing the rel-
evance of both subjects to daily life; more personalised contact with learners; and provid-
ing learners with additional learning materials and courses.
In the course of these interviews, CDE detected a further virtue in the present situation:
the high level of concern among educational experts that South Africa should do better,
and the conviction that it can do better. Appropriate initiatives – perhaps launched as a
result of this report – will certainly find a sympathetic audience among these practitioners
and their peers.
Case studies
Perhaps the most significant qualitative perspective was that which emerged from a study
of 13 schools in five provinces whose performance in maths and physical science was
either excellent or improving, relative to comparable schools. The selected schools were
• Tsogo High School : Located in North West, in a peri-
urban, ex-bantustan area 45 kilometres west of Pretoria.
Some 65 per cent of learners from townships, and 35 per
cent from rural and informal settlements. Cumulative
maths performance, 1996-2001: candidates – 405; HG
passes – 146; SG passes – 253: pass rate – 98,5 per cent
• Ahu Thuto Secondary School: Located in Orange
Farm, Gauteng, a vast informal settlement 50 kilometres
south of Johannesburg. The area is marked by poverty
and unemployment. Some 85 per cent of learners from
Excellent schools in unexpected places
the surrounding townships, and 20 per cent from the
informal settlement. Cumulative maths performance,
1996-2001: candidates – 263; HG passes – 10; SG
passes – 210; pass rate – 81 per cent.
• Siyangempumelelo High School: Located in rural
KwaZulu-Natal, in a former tribal reserve, 34 kilometers
from Nongoma. All the learners come from the
surrounding rural areas. Cumulative maths performance,
1996-2001: candidates – 160; HG passes – 28; SG
passes – 84; pass rate – 68 per cent. CDE 2004
A remarkable coherence
of views emerges from
our qualitative research
regarding the scale and
nature of the problem,
and the actions that
should be taken
19
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
diverse in terms of the socio-economic backgrounds of learners, resources, history, and
other factors. All they had in common were a principal, some classrooms, some educators,
and a majority of African first-language learners. Seven of the schools consistently per-
formed far better than the national average in maths and physical science, while the
remaining six were performing better than they had in the past, and somewhat better
than the national average. All but two were ordinary African public schools in five differ-
ent provinces, located in rural KwaZulu; urban townships, including Khayalitsha and
Soweto; informal,’peri-urban’ settlements including Orange Farm; and former bantustan
areas, including Hammanskraal.
The case studies tell us unequivocally that success in maths and physical science in
South African schools is based on the most widely recognised and most conventional per-
formance factors, namely the quality of the principal; the competence of the educators;
the effectiveness and efficiency of school management and administration; adequate dis-
cipline in all aspects of school life; healthy competitiveness within the school and among
schools; and relatively traditional methods in the classroom.
Obviously, resource and other inequities are evident across the schooling system, and
play a large part in determining learners’ chances of success in maths and physical sci-
ence. However, remarkable – even miraculous – virtue was often found where such nega-
tive socio-economic factors weighed most heavily.
The educator is at the centre of all efforts to improve maths and physical science
learner performance, including so-called ‘learner-centred’ methods, which are based on
an educator’s decision to use this approach. Successful educators emphasise clarity of
explanation, repetition of problems, volume of homework done and marked, feedback on
performance, and specific preparation for examinations once the syllabus has been cov-
ered. Good relationships among the school, parents, and the surrounding community also
contribute to school and learner performance.
Effective teaching is occurring in very inauspicious settings. However, this virtue is not
as widespread and consistent as it could be. A small percentage of South African schools
continue to supply a high percentage of the successes. We also encountered some illumi-
nating faults, both of omission (ie, not doing well-known things), and commission (ie,
doing things that were known to be incorrect).
On balance, though, we can now state with confidence what the virtues are within
schools to be built on or created, what the faults are, and also what practical steps can be
taken to remedy the situation. Many basic reforms are still necessary in many extremely
underresourced schools, and should be pursued energetically to the point where all sec-
ondary schools possess an essential minimum of educational resources.
Conclusions from the qualitative research
A remarkable coherence of views emerges from our qualitative research regarding the
scale and nature of the problem, and the actions that should be taken. The interviews,
workshops, and case studies support each other in identifying specific ‘virtues’ that repre-
sent opportunities on which to build successful reforms. Interviewees were also united in
their criticism, and even in their despair over the present system.
This unanimity of views also represents an opportunity. It means that there is a group
of committed professional educators in the country whose views are consistent and could
be galvanised into action by good leadership and well-planned initiatives. This group also
We now have sufficiently
detailed data about the
system to allow us to
intervene locally in
different ways, within a
consistent overarching
policy and strategy
20
F R O M L A G G A R D T O W O R L D C L A S S
understands that the problems cannot all be overcome at the same time, or by means of a
single policy initiative, and that the policies applied in schools need to be sufficiently flexi-
ble and pragmatic for the virtues already evident in the school system to be built on. In
addition, ample information now exists about the views of different groupings within the
body of concerned professionals, which can be the basis of a sophisticated campaign to
gain their support.
The principals, parents, educators, and learners interviewed by CDE are knowledgeable
about the factors of success, and about the actions necessary for excellent maths and
physical science performance. Instead of planning system-wide and undifferentiated
reform policies, education theorists, policy-makers, and departmental officials should be
‘looking for virtues’ in the existing system. These ‘virtues’ clearly demonstrate that the
system is already capable of a much better performance, provided the basics are attended
to and improved.
INTERNATIONAL EXPERIENCE
Flowing from our international research, we believe South Africa is capable of launching
an effective strategy to improve the ‘quantity of quality’ maths and science HG passes. A
high level of conceptual understanding has been developed internationally, and success-
ful practical interventions have been made in many national systems. These have been
exhaustively evaluated and documented. It remains for us to apply these findings intelli-
gently in this country. Some of the key lessons distilled from our survey of international
research, and their local implications, are:
Systemic change is the only approach likely to succeed in a large educational
system that is in active operation and has deep-seated problems.
There is now almost universal acceptance internationally of the concept of ‘systemic
change’ or ‘systemic reform’. Much has been written about this concept, some of it aca-
demic in nature, and difficult to use in real systems. Some writers appear to confuse ‘sys-
temic’ with ‘radical’, and assume that systemic change involves rapid fundamental change
of an entire system. This is misleading, as systemic change is essentially a conservative
approach, in the sense that it acknowledges that a working system already exists, and seeks
to conserve what is good in the system and build on it, rather than starting afresh.
Small systems might, in principle, be changed all at once, while systems that are no
longer functioning can be reconstructed from scratch. However, South Africa’s maths and
science education system is operating in many dimensions with a measure of success, it is
large, and must be kept going while improvements are made. It is essential to balance
change with the need to maintain the best possible quality in routine operations. Only a
portion of available resources can be committed to reform; most have to remain committed
to routine operations. This is another compelling reason for careful, step-by-step change.
We must think holistically, but act incrementally.
Our understanding of systemic change means that we need to plan holistically to act at
appropriate local levels, and in respect of local components of the system. There are obvi-
ous criteria for selecting points at which to act: the change must be manageable; goals
The South African school
population has at least as
many potentially
successful maths and
science learners as any
other national system
21
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
djfksdjdfkjk
The ‘102 dedicated maths and science high schools’ pro-
gramme – subsequently renamed Dinaledi (‘stars’) – was
launched in 2001 as one of the key components of the
National Maths, Science and Technology Strategy (NMSTE).
In the words of the NMSTE annual report for 2003, it is
aimed at increasing the participation and performance of
historically disadvantaged learners in 102 schools distrib-
uted ‘pro rata across the nine provinces’. The report also
offers an assessment of Dinaledi three years after its com-
mencement. A brief summary follows.
Achievements
• Raising maths and science participation and performance
in the 102 dedicated maths and science schools.
• A ‘steady increase’ in enrolment and pass rates.
• ‘Encouraging’ improvements in African maths and
science participation and performance.
Constraints
• Poor output of maths and science graduates in grade 12
– particularly at HG.
• Underqualified and unqualified maths and science
teachers, feeding into a ‘vicious cycle of low-quality
teaching, poor learner performance, and a constant
The Dinaledi Programme: NdoE three-year review raises tough questions
undersupply of quality teachers’.
• A lack of adequate facilities and resources for effective
teaching and learning
• Insufficient financial and other forms of support for
talented students
The new minister of education, Naledi Pandor, has stated:
‘We will consolidate the efforts made thus far in improving
the teaching of mathematics, science, and technology in our
schools. Not only will we continue supporting the 102
Mathematics and Science focus schools, we will provide the
resources necessary for the proper teaching and learning of
these subjects in many more schools, both at primary and
secondary level.’
The Dinaledi programme is clearly a vital initiative. How-
ever, after three years of operation, some important questions
arise. How should specialist schools be selected? Is there a
process for additional schools to qualify in time? Exactly what
is being achieved in each school? Which aspects of the pro-
gramme are working well, and which have not turned out as
expected? Do we have the capacity to expand the pro-
gramme to many more schools, bearing in mind the NDoE’s
own finding about the shortage and lack of skills of existing
educators? In the final section of this report, we make a spe-
cific recommendation about Dinaledi. CDE 2004
must be realistic; outcomes must be visible and demonstrable; components of the system
must be selected that are functioning quite well but could rapidly be improved to become
excellent; others must be failing so visibly that they are undercutting any positive out-
comes; and so on. The criteria for action must be different in different cases, because the
system itself is heterogeneous. However, as we have seen before, we now have sufficiently
detailed data about the system to allow us to intervene locally in different ways, within a
consistent overarching policy and strategy.
We must intervene at the appropriate level in order to create positive outcomes
as soon as possible.
International literature makes it clear that systemic change works optimally by identify-
ing basic building blocks upon which positive reforms can progressively be attached. It is
important to create positive outcomes as rapidly as possible, as these create a sense of
progress, and motivate participants. Some interventions need to be considered in the
framework of long-term goals. Others have to be considered in terms of quick gains,
strengthening motivation, providing models that can be dispersed more widely, and other
strategic objectives.
Despite energetic
government efforts over
the past 10 years,
significant results have
not been achieved, and
disillusion is setting in
22
F R O M L A G G A R D T O W O R L D C L A S S
A successful way of achieving focus is to group efforts relating to a particular problem
into a ‘programme’, with specific participant inputs, activities, and goals that can develop
quickly and provide results that can be generalised to the whole system. A restructured
Dinaledi Programme could play this role, leading to the more widespread acceptance of
specialist schools.
People come before structures.
The priority area for initiating systemic change is not structures, but people. This is partic-
ularly true of education systems. The key factor in any systemic change is the supply and
retention of competent and confident educators, closely followed by the supply of effective
and efficient principals.
The quantitative studies commissioned by CDE show clearly that the South African
school population has at least as many potentially successful maths and science learners
as any other national system. Our immediate task is to ensure that more learners enrol for
SC maths and science, and pass these subjects at the HG (or, from 2008 onwards, its FETC
equivalent).
Added to this, we need to attract appropriate numbers of school-leavers to careers as
educators in maths or physical science, and also improve the content knowledge and
teaching skills of existing educators. There is little doubt that this is where our pro-
gramme of systemic reform should begin. Using a variety of incentives, we must attract
school-leavers to higher education programmes that will lead to their employment as edu-
cators. At the same time, we must retain and improve all existing educators. Using differ-
ent incentives, we must attract some of those who have left back into the system. It is an
illusion to think that these goals can be achieved if we continue to treat maths and science
educators in the same way as all others.
Every study that CDE is aware of shows that educators in developing countries tend to
lack confidence, and become fearful and demotivated when confronted with large-scale
changes over short periods of time. As a consequence, successful programmes avoid
changing too many features at once. It would be inappropriate to change curricula, teach-
ing methods, and examinations simultaneously, however strongly we might feel that these
three components should dovetail. Dovetailing can be achieved over time; an improved
curriculum with unchanged teaching methods and the same exam format would in itself
represent an advance. The low confidence levels of educators also lead to two other obser-
vations. The proposed changes must be canvassed thoroughly with educators, and effec-
tive training provided in respect of changed procedures. Also, the main source of the lack
of confidence of most educators is poor content knowledge, and this issue must be
addressed before attempts to change teaching methods are made.
People respond to incentives
Successful systemic change is underpinned by a single fundamental truth: development
depends on people, and people respond to incentives. Looked at from this perspective, an
educational system is nothing more or less than a complex system of incentives that pro-
vides people with rewards for doing what they wish to do to the best of their ability. Such
incentives are by no means limited to financial rewards, but also include opportunities for
personal and professional development, peer recognition, praise from superiors, respect
Hundreds of thousands of
young South Africans are
enrolled in schools where
they have little or no
chance of passing HG
maths and science
23
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
from subordinates, and many other factors. Systemic reform, then, should not start with
the question: ‘How can we make people do this?” It should start with the question: ‘What
incentives can we offer people to do this, and become motivated to do it better?’
POINTS OF DEPARTURE
The insights gained from our research have been used to formulate 12 key propositions
which will in turn serve as points of departure towards our practical recommendations in
the final section.
1. Maths and science are crucial to South Africa’s success.
National development requires an increasing number of skilled personnel. Specifically,
they require competencies based on mathematical and/or scientific knowledge.
Despite energetic government efforts over the past 10 years, which are described and
analysed in depth in our main report, significant results have not been achieved, and disil-
lusion is setting in. This emerges clearly from our interviews with educators and educa-
tion officials, as well as our school studies. These feelings contribute to a perception of
national inability to stimulate development and meet promises, and will worsen should
maths and science education be perceived as an area where delivery fails to match reason-
able expectations.
We must and can persuade the nation as a whole to accept the significance of maths
and science reform, and participate in it. A wide variety of groupings have legitimate and
positive roles to play. We must go beyond a sense that maths and science education is sim-
ply ‘the government’s job’, and mobilise resources on a nationwide basis.
2. Failure with respect to maths and science education is the most important
obstacle to African advancement.
CDE’s research has clearly demonstrated the extent of the national crisis in maths and science
performance and participation since 1991. The effects of this national crisis are most evident
in respect of African learners. To restate our findings: in 2002 only 4 637 African learners
passed HG maths, representing only 13,14 per cent of all SC candidates, and only 23,42 per
cent of all HG passes. And only 7 129 African learners passed HG science, representing only
14,06 per cent of the total number of SC passes, and 30,42 per cent of all HG passes.
This is holding back African advancement. It places a huge obstacle in the way of
achieving almost all the government’s ambitions to open up vast new areas of opportu-
nity for black South Africans. The private sector’s efforts to apply government policy and
open its doors to Africans are held back if there are insufficient numbers of qualified can-
didates for increasingly skilled positions. Most of the jobs now being created require com-
petence in at least mathematics – this includes work at nearly all skills levels, in the manu-
facturing, construction, retail, service industry, engineering, and technology sectors.
Successful businesses, enterprise creation, and management skills across the board
require a competence in maths and languages. Access to higher education and the profes-
sions is in almost every case precluded without, at least, maths qualifications.
If we want to ensure African economic empowerment, increased employment equity,
We do not have the
educator capacity to
reform the system
immediately, even in
grades 10–12. We still
have to build that
capacity
24
F R O M L A G G A R D T O W O R L D C L A S S
and growing numbers of Africans in more senior positions in the economy and society, we
have to dramatically improve the number of school graduates in HG maths and science.
This will also require more qualified candidates entering the education profession, and
becoming dedicated and effective teachers in these subjects. There can be few higher pri-
orities in South Africa today.
3. The present maths and science education system is failing many individuals
and their communities, and is wasting national resources
Hundreds of thousands of young South Africans are enrolled in schools where they have
little or no chance of passing HG maths and science. Simultaneously, there are thousands
of young learners who, if given the right guidance, as well as competent teachers, would
pass SC maths and science in the HG.
This is key to all our ambitions concerning community upliftment and local economic
development not to mention individual or family advancement. An example from Gauteng
illustrates this point: in 2003 the two Ekhuruleni townships of Tsakane and KwaThema,
situated at the heart of the national economy, achieved 1 600 SC passes – but only 12 of
these included HG maths.
4. We need to acknowledge the diversity and complexity of the system, and
support targeted interventions over single policy approaches.
South Africa’s schooling system is very large, and there are important variations in the
conditions under which maths and science education are provided. One single, central,
national policy and strategy for improving maths and science education would be inap-
propriate. Rather, within a broad framework, focused policies are required aimed at
achieving specific outcomes in specific settings, utilising different strategies and methods
of implementation tailored to individual schools and their particular levels of teaching
skills and learner awareness.
A major obstacle to differentiated policies and implementation has always been inade-
quate information about the subcomponents of the system, whether these be geographi-
cal, managerial, functional, or learner-related. This project has started the process of
overcoming this obstacle. We now have reliable information on performance in the SC
examination over time, and in each of the provinces; the status of individual schools by
name, location, and facilities; a profile of individual school performance year-on-year, and
in comparison to all other schools; and individual learners, even the specifications of
groups whose members could pass either or both subjects at HG but do not enrol for these
subjects.
Therefore, it is now perfectly possible to act in different ways in respect of different parts
of the system. But the reasoning and logic for this graduated and phased approach needs
to be accepted by government, and communicated to all concerned, so that no misunder-
standings develop about the government’s medium- and long-term commitment to equal
access to quality maths and physical science learning and teaching for all.
When such an approach is adopted, issues arise around the balance between ‘transfor-
mation’ and ‘diversity’, and ‘equity’ and ‘excellence’. But that is exactly the point. This
area of policy requires an ongoing debate among stakeholders within the general princi-
ple of differentiated policies, implemented intelligently in different ways in different parts
South Africa does not yet
have the resources to
introduce a bottom-up
reform initiative, starting
in primary schools
25
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
of the system, according to local conditions. This will involve a wider spread of responsi-
bility that will, in turn, release much greater initiative and responsiveness in the system.
5. We cannot change everything at once. Priorities are required.
Research cautions us to be realistic. Despite all the ‘virtues’ we have identified, we still
haven’t reached square one. The reality is that we do not have enough educators compe-
tent to teach maths and science, nor sufficient learners competent enough to study these
subjects at the levels we require and in numbers that will make a difference to the econ-
omy and the education system. We certainly do not yet have the resources to introduce a
bottom-up reform initiative, starting in the primary schools.
The implication of this is that, before we proceed, we must agree on the key priorities
for immediate action. The system is too heavily constrained to attempt many things at
once. In a situation of limited capacity in government, provinces, schools, the educator
community, and the private sector, only a few priority areas can be addressed, but these
must be the key priorities.
Our research indicates that we must intervene in grades 10 to 12, keeping as much of
the present system intact as possible, and focus on increasing the number of good HG
passes over a short period. Then we must try to draw as many of these graduates as possi-
ble back into education, and retain them by any means necessary, including incentives
appropriate to their individual and professional needs. At the same time, the content
knowledge and teaching skills of existing maths and science educators must be improved
and upgraded. Vigorous attempts must be made to re-recruit well-qualified and skilled
educators who have left the system. We must also accept the vital role played by language
competence, and launch appropriate programmes to improve educators’ skills in the lan-
guages of instruction and examination. We must be clear that, while this is only a first
phase, it is a vital one without which further advances will not be possible.
Every resource available to us will be needed to achieve only these few priorities for
action. We do not have the educator capacity to reform the system immediately, even in
• Increase the number of qualified maths and science
educators.
• Ensure that each educator has a sound knowledge of the
curriculum.
• Improve the professional development of educators.
• Upgrade the language competencies of maths and
science educators and learners.
• Identify learners with an aptitude for maths and science
early in the system.
• Give more time to maths and science in the school year.
• Benchmark performance, domestically and internationally.
• Apply policies and programmes in a flexible manner,
relating them to the needs of individual schools.
Maths and science challenges in brief
• Launch programmes specifically aimed at improving pass
rates in maths and science, including specialist schools,
incentives for educators, and financial assistance to
learners.
• Act on critical factors identified in the school-based
research undertaken by CDE and others.
• Strengthen school management and administration.
• Strengthen school governing bodies and allow them to
take substantive decisions in respect of maths and science.
• Temporarily suspend the maths and science programmes
in extremely weak schools, and redeploy qualified
educators and talented learners to stronger schools.
CDE 2004
A sound theoretical basis
exists for using incentives
to improve the
recruitment, development,
and retention of maths
and science educators
26
F R O M L A G G A R D T O W O R L D C L A S S
grades 10-12. We still have to build that capacity. Policies and strategies cannot assume
that we have the capacity even to train our present corps of educators to deal with new
curricula and teaching methods.
6. Additional properly qualified and trained maths and science educators must
be found
There is no reliable national database on the qualifications of educators in South African
schools. The best information available is based on self-reporting by educators concerning
their qualifications. By this measure, only 14 per cent of schools reported in 2001 that
their maths and science educators had the minimum qualifications prescribed by the
NdoE (SC plus 3,5 years of higher education). The country faces a severe shortage of
trained, qualified, and experienced educators if we wish to expand participation and
improve the performance of learners at the levels required.
Experts indicate that the norms for higher grade maths and science teaching need to be
higher than at present. For maths, the norm should be that all teachers who teach HG
maths (or maths as opposed to maths literacy in the proposed new system) should have a
university degree with a mathematics major. For science, all teachers should have physics
and chemistry majors in their university degree or one major with the other at second
year level.
As temporary measures one could use people with Maths 11 for maths or people with
two years in physics and chemistry for science. In general three or four year college diplo-
mas will not do for higher grade teaching in grades 10-12. Finding out who these teach-
ers are in our system will take a special audit. Once we have this audit we will be in a posi-
tion to measure the true extent of the enormous educator challenge that the country
faces.
Serious consideration needs to be given to retaining our many excellent teachers (many
of whom work under difficult circumstances); utilising their skills as effectively as possible,
so that as many learners as possible can benefit from their expertise; attracting more of our
small numbers of appropriately qualified SC graduates back to the teaching profession;
ensuring the best possible system of upgrading the knowledge and skills of those who are
already in place (CDE has identified international programmes that are directly relevant);
and, if necessary once we know the results of a detailed audit of current educator qualifi-
cations, hiring qualified and experienced English-speaking educators from other countries
(India, parts of eastern Europe, and other African countries offer real possibilities).
7. Anyone with aptitude and initiative should have access to maths and science
education
The maths and science education system must be purposefully broadened to encompass
every learner with aptitude and the initiative to take up the learning challenge involved.
However, not every learner has the capacity or interest to succeed at the highest levels,
nor to go on to a degree and an education qualification. Therefore, the value of access
across the system must be pursued at the same time as excellence is achieved in specific
parts in the system. Mechanisms must be found to ensure that ‘no child with potential in
maths and science is left behind’ because they live in a part of the country that has been
historically neglected. This will require learners with potential to be identified at an early
Private education is
growing rapidly in most
developing countries. It is
no longer synonymous
with ‘elite’ education
27
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
stage; and the country providing the organisation and resources needed to enrol them in
schools competent to teach maths and science.
8. Incentives play a decisive role in development.
Development literature, evidence of what works internationally, and numerous projects
and programmes increasingly show that incentives play a decisive role in human develop-
ment, and thus in social development. It has become clear that development is often
unsuccessful if it simply exhorts or encourages individuals, or even seeks to create specific
opportunities. Meaningful incentives also need to be provided. These must be measurable
advantages to individuals that, if taken up, will assist both the individual and society.
Incentives are already a major feature of the modern workplace: these arrangements
are now so prevalent that an influential commentator, Professor William Easterly has
stated: ‘People respond to incentives: all the rest is commentary.’
Our research shows that a sound theoretical basis exists for using incentives to improve
the recruitment, development, and retention of maths and science educators. They need
to be carefully implemented; however, if applied sensibly, incentives can play a positive role
in overcoming constraints in the supply of and demand for maths and science educators.
They can also encourage more students to study HG maths and science when they see the
rewards available to them for working at these ‘difficult subjects’. Lastly, they can also be
used to encourage schools to improve their maths and science performance.
9. State and markets – supply and demand in education.
In country after country in the developed and developing world, progressive modern
states are providing the private sector increased scope and opportunities as the providers
of more differentiated, specialised educational opportunities, often in response to rising
demand from parents.
This is being accomplished in countries with both large and small populations, and
without governments relinquishing their obligations for continuing to ensure that an effi-
cient and effective public system of education exists. By creating the space for private
providers in education, many public education authorities have successfully combined a
degree of deregulation of the educational sector with expanded opportunities for private
education providers to operate in tandem and/or parallel with public education. Increas-
ingly, public monies follow the learner – whether that learner attends a registered public
or independent school. As long as the regulatory system ensures public accountability for
performance and some aspects of the curricula (a commitment to support the country’s
democratic constitution, for example), such systems have positive outcomes on perform-
ance. A compelling example is the provision of publicly funded school vouchers for use by
poor inner-city students, often drawn from minority communities, in the United States,
and supported by a majority of African-American parents nation-wide. Another example
from countries in the EU and the US involves public schools operating under special agree-
ments with state education authorities to provide specialised education – so-called ‘char-
ter schools’.
Private education is also growing rapidly in most developing countries, and, as a recent
International Finance Corporation report shows, it is no longer synonymous with ‘elite’
education. In fact, the opposite effect is evident in that many poor learners previously
‘Fixing’ South Africa’s
system of maths and
science education is
the country’s top
educational priority
28
F R O M L A G G A R D T O W O R L D C L A S S
trapped in underperforming, underresourced, poorly managed public systems now have
access to reasonably priced, good-quality, and standardised educational opportunities pro-
vided by global or local education companies. South Africa is not excluded from these
global processes. Our research shows that stimulating demand within the publicly pro-
vided system can also encourage greater flexibility and efficiency of provision; improve
the motivation of principals, educators, and learners; and generally add value to the sys-
tem.
The 21st-century state has an obligation to provide a public system of education and
should do so as efficiently and effectively as possible. However, there is no value in insist-
ing that public provision and overall accountability for a quality education in a given sub-
ject precludes working with private providers of education, or responding to demands
from parents and learners for the more flexible use of public resources.
Real advantages accrue to countries that encourage a thousand (educational) ‘points of
light’ to burn, while keeping a stern eye on quality control and standards. Flexibility of
provision and responsiveness to need must balance the acceptance of responsibility by the
public sector.
10. We need to demonstrate new attitudes towards educational reform.
The success of the initiatives CDE is proposing will depend on pragmatism, flexibility, pri-
oritising the needs of one part of the system over others (at least temporarily), and provid-
ing special incentives for and status to certain educators and learners. The country needs
to approach elements of educational reform in a more pragmatic and nuanced way. Such
an approach in no way diminishes the long-term goals of equity and excellence, but does
mean more flexibility in how we achieve these goals. Some areas of change must be priori-
tised over others. Excellence must be seen as the precursor of and not the successor to
equity. Equity of provision in maths and science can only be achieved through excellent
principals and educators. There may even be a need to discontinue expenditure on maths
and science in long-standing unproductive areas, such as schools with long histories of
pass rates below 20 per cent, so that we can focus all resources where the most positive
results will be achieved most quickly.
Obviously, the approach CDE is proposing differs from any of those used thus far. We
believe this is necessary and beneficial. Too many interventions have been attempted
without lasting impact, and it is time to try something new. But we need to try it in a disci-
plined, conservative, and incremental way, in order to minimise possible negative side-
effects, and maximise our chances of success.
11. The importance of a monitoring and research base for action.
Proposals to change even a badly functioning system have to be based on sound research
of that system, and located in a solid understanding of what is being tried elsewhere.
We need to identify and monitor key indices of improvement. The system itself cannot
be improved without frequent assessments of how it is performing, where its strengths lie,
and which schools continue to disappoint despite the application of resources and sup-
port. We must, however, agree on what these key indices are: in our view, it is the increas-
ing quantity of quality passes.
South Africa has erred by moving away from system assessments, and probably has too
Any attempt to improve
the maths and science
education system must
start with limited but
achievable aims that
will lay the foundation
for an improving
system over time
29
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
few individual examinations as well. We need to sample our system more frequently,
assess patterns of performance and participation in our schools, and begin to target our
resources within a clear programme that supports participating schools and rewards indi-
vidual schools on their respective merits.
12. The government must lead a national partnership that delivers results.
As in any large-scale system, government must provide a clear framework for action, with
appropriate guidelines and targets for implementation at different levels.
However, this programme must be drawn up in consultation with all role players, and
the government must ensure that its goals and outcomes are consistent with all its other
actions and policies, and that individual school communities are empowered to respond
positively to these initiatives. In the last instance the responsibility does lie with govern-
ment to introduce and drive such a programme via an appropriate body, but it must find
positive and productive ways of working with other role players.
Conclusion
‘Fixing’ South Africa’s system of maths and science education is one of the country’s
most important national priorities. Energy, goodwill, and capacity to move ahead is evi-
dent across the public and private sectors. What is needed is an achievable set of activities
that will demonstrate rapid progress, and improve confidence in our ability as a country to
turn things around. Leadership is required that understands the constraints within which
we need to move forward, and can pull together the energy and resources of all those will-
ing and able to make a difference. We will now make practical proposals on how to move
forward.
An incentives programme
for maths and science
educators should be
launched immediately. It
must be aimed at
attracting new educators,
as well as retaining the
skilled educators we have
30
F R O M L A G G A R D T O W O R L D C L A S S
CDE’S RECOMMENDATIONS
South Africa has to deal with a national crisis with respect to maths and science school-
ing. Current public and private sector efforts are insufficient to significantly change the
system that is failing individuals, families, communities and the country. Almost all South
Africa’s ambitions to grow the economy, provide new job opportunities for black citizens,
and ensure our success as a democracy are undermined by our collective failure in this
area. We do not have the capacity to change everything we would like to immediately. A
limited programme of action needs to be decided upon. Dramatic improvements in the
number of quality passes are possible in the short term. Achieving these will require a
new and common framework of understanding and investment by public and private
leadership and other key players.
In this final section, we will define goals for a new approach to maths and science edu-
cation in South Africa; outline our overall approach to reform; and put forward ten practi-
cal proposals.
Goals
Over the next five years, South Africa should aim to:
• double the number of HG SC maths and science passes
• double the number of qualified and able teachers in the public school system
Approach
CDE’s recommendations are based on the following underlying guidelines that have
emerged from our research:
• Any attempt to improve the maths and science education system must start with lim-
ited but achievable aims that will lay the foundation for an improving system over time.
• New initiatives must build on what is working in the system, ensure that performing
schools continue to excel while changes are introduced, and ensure that their ability to
deliver quality education is available to as many individuals as possible.
• During the next five years, every learner with aptitude and initiative, wherever he or
she may live, must have the opportunity to study at a school that provides effective
maths and science teaching;
• There is no “single best national way” to improve maths and science education through
centralised policies.
• Public and private sector leadership, energy, and initiative must pull together if we are
to succeed.
Proposals
We must introduce a comprehensive programme that provides for systemic change,
involves public and private sector leadership and resources, achieves short-term results,
and is implemented via an effective and accountable institution.
Steps should be taken to
identify all high-
performing schools and
investigate ways in which
they could play an even
bigger role
31
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
Mobilise the concerns of important stakeholders in mathsand science education into a national programme.
There are many stakeholders in maths and science education, including national and
provincial government, the private sector, foreign governments and donor bodies, interna-
tional agencies, the independent schooling system, tertiary education, the scientific
research community, educators, learners, and, last but not least, parents.
There is a worldwide recognition that this is a difficult field, and few countries are satis-
fied with their performance. Therefore, the challenge must be seen as a long-term one.
Improving and reforming the system must be regarded as an ongoing process, not a single
goal to be reached at a specific point in the future. We have to plan to produce a better sys-
tem with a built-in capacity to improve further by monitoring and evaluating its own per-
formance, and making additional incremental changes. In order to do this, we must assess
progress much more often; and test learners more frequently. The outcome we all seek is
better results, and a gradually improving system. In the process, we should aim at creat-
ing greater public confidence in the education system as a key pillar of a successful and
increasingly prosperous democratic society.
Mobilising the energies and commitment of all the relevant role players will require an
energetic but focused programme. We need a systematic, country-wide initiative aimed at
ensuring a common understanding of the nature of the challenge we face and mobilising
commitment and involvement towards the common strategic set of interventions pro-
posed here.
The key to successful reform is an increased supply of quali-fied maths and science educators.
Effective educators are vital to improving the system, but they are in short supply, thus con-
straining our reform efforts. Three programmes should be devised to deal with this situation:
• Identify the qualified and able maths and science educators currently in the schooling system.
No one has reliable and comprehensive national information. This is urgently needed
for the programmes we are suggesting, and also because our research indicates that
there are a large number of educators qualified to teach maths and science but who are
employed to teach other subjects.
• Increase the supply of qualified maths and science educators, and retain existing competent
educators by means of a well-conceptualised programme of incentives. Maths and science
educators are in short supply throughout the world, and graduates with appropriate
qualifications are at a special premium in South Africa. Nevertheless, the issue of provid-
ing incentives to educators in certain subjects has long been resisted here. An incentives
programme for maths and science educators should be launched immediately. It must
be aimed at attracting new educators, as well as retaining the skilled educators we
have. The best results will probably be achieved if the innovations are introduced as a
distinctive ‘programme’ and not as part of the routine public administration of this sec-
tor. This will also give the programme a better chance of attracting financial support
from other institutions, including private sector corporations, as it will give their fund-
ing a specific focus.
• Institute a new approach to the professional development of maths and science educators; if
2
1
All maths and science
educational activities
should be closely linked
with improved language
education
32
F R O M L A G G A R D T O W O R L D C L A S S
necessary, adopt successful models from abroad. The first emphasis in developing educa-
tors must be on content knowledge, followed by teaching skills. This is the basis of the
most successful educator development programmes CDE has identified in the course of
its research. Their success is also based on the principle of steady incremental improve-
ment achieved within a comprehensive programme of support, marked by regular
assessments, combined with appropriate incentives to participants. The motivational
and communications dimensions of these programmes are also impressive. Educators
who benefit from these programmes are expected to pass on some of their new-found
knowledge and skills to colleagues who have not or could not attend. Should a high-
profile international programme be adopted, other national government aid institu-
tions, corporations, and private foundations might be persuaded to financially support
its introduction in South Africa.
Build on the potential in the school system.
Given CDE’s school performance index, we are now able to identify and classify the maths
and science performance of every secondary school in the country. This enables us to for-
mulate specific initiatives to improve their performance, and the access of talented learn-
ers to well-performing schools. Steps should be taken to:
• Identify all high-performing schools (ie schools with a pass rate of 80 per cent or more in
large HG maths and science classes), and investigate ways in which they could play an even
bigger role. Can they deal with larger classes; can they expand their maths and science
departments; can they share their expertise with poorer performing schools in their
neighbourhoods; can a city run a programme to encourage performing schools to
‘adopt’ the maths and science departments of non-performing schools in other parts of
the city? Appropriate incentives must be provided for these schools to play such an
expanded role.
• Devise specific programmes to help those schools delivering pass rates in the 60-80 per cent
band to improve their performance. These could include programmes to improve general
school management, and programmes to improve the skills of educators teaching
maths, science, and the languages of instruction in those subjects. Again, incentives
should be provided to motivate school administrators and educators to move to a
higher performance bracket.
• Establish an independent, objective measure of each and every school’s annual performance in
maths and science. Incrementally ‘raise the bar’ for every participating school by setting
realistic targets for increasing participation and performance. Link incentives to goals,
so that schools are encouraged to progressively climb the ladder of success with respect
to maths and science delivery.
‘No child left behind’: provide mechanisms for learners andparents, wherever they live, to take advantage of neweducational opportunities.
South Africa’s educational system has to deal with the legacy of apartheid. This means
that many poorer, mainly African, households in urban as well as rural areas do not have
3
4
Concerned private sector
funders should use this
report as the basis for a
discussion on how to
focus their input more
strategically
33
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
access to good schools with functioning maths and science departments. This harsh real-
ity cannot be fixed overnight, and CDE’s proposals are designed to incrementally increase
the country’s supply of decent educational opportunities for everyone. This will take time.
In the meantime, there are initiatives we can undertake to ensure that no one with initia-
tive and aptitude need be denied opportunity.
We need to find ways of stimulating greater demand by parents and learners (and dedi-
cated educators and principals) for quality maths and science education, by providing
new avenues for accessing opportunity in maths and science.
A trial programme should be launched that works as follows:
• The introduction of a national aptitude test, available throughout the country on an
annual basis. This should be for grade 9 learners and should be independently set,
marked, and monitored.
• Any learner who does well in this test should be eligible for financial support to attend a
school with a good delivery record in SC maths and science. This could be a neighbour-
ing school, when all that would be needed would be a transport subsidy; or they might
need to go to a boarding school, in which case more resources would be required.
• Money will follow learners – in other words, a learner would take his/her allotted pub-
lic subsidy with him/her to the new school, which would, in turn, benefit educationally
and financially.
• A pool of new funds will be needed for additional costs: running the aptitude tests
around the country, providing boarding fees or transportation costs or both for promis-
ing learners.
This is a new proposal for the redistribution of financial resources towards poor parents,
and will need to be thought through carefully, and implemented experimentally. But its
long-term beneficial impact seems clear. Demand for better maths and science education
will have a positive impact on the entire system, as schools lose or gain learners, and will
provide incentives to schools to change and improve. There is international experience on
which to draw. This would be an ideal area for attracting private sector support and
involvement.
If we want results in the next five years we need to get much better matching between
good learners, good educators and effective schools. This set of proposals – an aptitude test
to identify learners with potential and then the mechanisms and resources to get those
learners to effective schools who teach maths and science at HG level properly - will help
the country to do this and should be implemented as a matter of urgency.
All maths and science education initiatives should includeappropriate language components.
For ease of reference, CDE has used the phrase ‘maths and science education’ throughout
this and the main report. However, as we have noted earlier, learners’ proficiency in the
language of instruction and examination plays a very significant role in their perform-
ance in maths and science. This has been confirmed by CDE’s case studies, our interviews
with practitioners, and our workshops with examiners. It is also stressed in the interna-
tional research.
As a result, all maths and science activities should be closely linked with improved lan-
guage education. Given the nature of global economic development, it will be most benefi-
5
Research indicates many
areas in which general
education policies and
funding priorities are
having a negative impact
on maths and science
34
F R O M L A G G A R D T O W O R L D C L A S S
cial if the language involved is English, though learners with Afrikaans as a first language
seem to experience little difficulty in proceeding to grade 12, and managing any necessary
transition to English after that. How this issue is best approached and what steps ought to
be taken should be a priority task of a National Task Force (see recommendation 10).
The Dinaledi programme should be reconceptualised,restructured, and expanded.
Dinaledi has broken new ground for maths and science in the public schooling system.
However, in reviewing what has been achieved (and acknowledging the ‘virtues’), we
must also acknowledge where our performance has been disappointing, and take remedial
steps, so that many more schools and learners can participate and benefit.
CDE recommends that the Dinaledi programme be reconceptualised, restructured, and
expanded. It should be a permanent feature of the education system. It should also fall
under the aegis of the proposed National Task Force (NTF) on Maths and Science Educa-
tion (see recommendation 10 below).
Review all other educational policies for their effect onmaths and science.
As South Africa enters its second democratic decade, we are convinced that maths and
science schooling is its top educational priority. If one accepts this proposition, then this
has consequences for existing policies, approaches, and the allocation of resources.
Our research has indicated many areas in which general education policies and financ-
ing priorities are (unintentionally) having a negative impact on maths and science educa-
tion.
This situation should receive the urgent attention of our proposed National Task Force
(see later), in consultation with stakeholders. It should commission focused research, for-
mulate specific proposals for change, and submit these as soon as possible to the minister
of education.
The private sector and NGOs should review the support theyhave given to maths and science education with a view toaligning with the proposed national thrust.
Concerned private sector institutions should use this report as a basis for a discussion on
how to focus their input more strategically. Without being prescriptive, but in the spirit of
the systemic reform advocated here, the private sector should consider shifting its focus
from small-scale research and programme implementation to some or all of the following:
• Institutional support for a new public–private partnership to double the number of HG
passes in five years. In other words, help to fund the proposed National Task Force (see
later).
• Support to individual schools that are performing well and/or improving, or to schools
aspiring to join the specialised maths and science programme.
6
7
8
CDE proposes the
formation of a
public–private
partnership in the form of
a National Task Force to
drive the improvement of
maths and science
education in South Africa
35
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
• Support for an educator development programme based on credible international mod-
els.
• Support for programmes to identify learners with maths and science potential by
means of assessments in grade 9, ie, the aptitude test proposed earlier.
• Financial support for learners with potential who need to travel to or board at well-per-
forming maths and science schools.
• Provision of financial and other incentives to the best performing educators and learn-
ers.
• Financial support for maintaining and updating the CDE developed database on individ-
ual and school performance with respect to maths and science, as a tool for monitoring
progress. The database and its development should be placed under the control of the
National Task Force (see later).
• The work already being done by many corporations in providing bursaries for higher
education is acknowledged. Extension of these programmes to, or a tighter focus on
potential maths and science educators could be considered.
International aid agencies and foreign national donorsshould forge links with the new national initiative, anddevelop synergies between themselves and otherstakeholders.
Since 1994 financial contributions to South African education by international aid agen-
cies and foreign national donors have far exceeded those of local businesses and other
donors. The continued support of these foreign agencies will be essential for the success of
any maths and science programme. We believe this is a good moment for international aid
agencies and foreign national donors to commit additional resources and target their sup-
port behind the proposed national initiative and integrated programme of action being
suggested here.
The cabinet should establish a National Task Force as thevehicle to focus and direct a national partnership todramatically change the future of maths and scienceschooling in South Africa.
In making this recommendation, we aim to focus the commitment to adopt a systemic
nation-wide approach in a new institution devoted entirely to achieving the country’s
maths and science goals. Besides national and provincial government, there are a signifi-
cant number of stakeholders with an interest in this task. At present, they are not for-
mally involved in meeting this great challenge, except insofar as they are brought into
government initiatives or pursue their own (necessarily much smaller) initiatives. They all
do good work, but the whole effort is not greater (and may be smaller) than the sum of the
parts. Their efforts could be harmonised and amplified by creating a broadly based institu-
tion with responsibility for the whole system of maths, science, and language education.
Specifically, CDE proposes the formation of a public–private partnership in the form of a
National Task Force for the improvement of maths and science education in South Africa.
9
10
South Africa is dealing
with a national crisis. A
concerted new approach
by both public and
private sectors is required
36
F R O M L A G G A R D T O W O R L D C L A S S
Goals
The NTF should be made responsible for achieving two specific goals:
• doubling the number of school-leavers with an HG pass in maths, physical science, or
both within five years; and
• doubling the number of adequately qualified and trained educators in these subjects
with the same period.
These are the indispensable first building blocks of an incremental approach to systemic
reform.
Functions
The NTF should have specific functions that go well beyond ‘advising the minister’, and
generally promoting the need for an effective maths and science education system, though
both of these activities are necessary and desirable. It should also:
• Articulate and promote a strategy for achieving the goals referred to above, in a form
acceptable to the largest possible number of bodies or institutions presently working in
or providing funds for maths and science education. These should include all levels of
government; independent schools; higher education institutions; researchers and pro-
fessionals; donors; the South African private sector; NGOs active in education; maths,
science, and language educator associations; and others that make themselves known.
The aim is to achieve a greater alignment of effort than is presently the case, though
without discouraging initiative and experimentation with alternative approaches.
• Act as the body receiving and approving applications by schools to be appointed as par-
ticipating schools, and review the continued membership by each school after appro-
priate periods.
• Develop and administer a national assessment of learners’ mathematics and science poten-
tial, and link successful candidates to the nearest competent maths and science school.
• Develop and administer a national incentive programme for learners, educators, and
schools that will encourage them to participate positively in the national maths and sci-
ence programme.
• Maintain and update the school performance index created by CDE, and promote its use
in setting targets, designing methods, setting priorities, and assessing outcomes. These
potential uses are discussed in depth in the main report.
• Give substance to the urgent need to continuously monitor and evaluate the system.
There are five dimensions to this:
- Create and administer a credible assessment body that will give grade 9 learners a
chance to volunteer for an assessment of their maths and science aptitude. This will
enable parents, learners, and schools to make more informed decisions about choice
of subjects for SC.
- Commission ongoing and occasional monitoring and evaluation of aspects of the
system in consultation with the NdoE, provincial departments, and other bodies.
- Maintain a permanent monitoring and evaluation mechanisms for the system as a
whole, to assess progress and advise on incremental adjustments.
- Promote research into maths and science education trends, nationally and interna-
tionally, and bring findings relevant to the South African system to the attention of
the minister of education and/or other parties.
A bold response from
government is required.
If this happens, a
dramatic increase in
performance is
achievable in five years
37
- Create and maintain a programme for communicating with interested audiences
about the importance of maths and science education; the progress being made in
improving it; the logic of the strategy being followed; and stories of specific suc-
cesses. The programme should include an annual report to the cabinet, parliament,
and the public on activities and progress.
Membership
The NTF is envisaged as an expert (not representative) body, with public and private partici-
pation. The co-chairs should be drawn from the South African cabinet and business sectors.
Staff
CDE proposes the appointment of an executive director and one assistant only. All other
functions should be outsourced.
Funding
Initial funding should be sought from the public sector, the South African business sector,
and international and foreign donors for a five-year period.
CONCLUDING REMARKS
South Africa is dealing with a national crisis in its maths and science schooling. The cor-
rect response to this worrying situation is to adopt a concerted new approach by both the
public and private sectors. The key challenge is how to change a large and diverse system
without disrupting those parts of the system that are working.
CDE’s ten recommendations have far-reaching implications, especially as they would
play themselves out over time. They are practical, do not require extensive further
research, and can be implemented incrementally. We have set out to provide a broad
framework for action which is not a rigid blueprint to be followed and implemented
blindly. The proposed approach is a flexible one which takes account of existing public and
private interests and involvement in maths and science education. It also takes into con-
sideration the responsibilities and functions of different players from government at
national and provincial levels to parents, learners, educators and schools. In most cases a
start could be made at once.
Communication of this new approach, its benefits for all South Africans and its ambi-
tions within current severe constraints is an important consideration as we move forward.
The overall image of the new approach must be one of first building the higher level capac-
ity in sufficient quantity and quality to develop the essential expanded capacity which will
in turn allow a future transformation of the whole maths and science education system.
The CDE report provides a moment of opportunity for government. Key organisations
and interests in the private sector are willing and interested to help make a significant dif-
ference, hence their support for this privately funded initiative which has also received
enthusiastic support beyond its original donors.
A bold response from government is required. If this happens, a dramatic increase in
performance is achievable within a five-year period.
R E F O R M I N G M AT H S A N D S C I E N C E E D U C AT I O N I N S A S C H O O L S
South Africa has to deal with a national crisis with
respect to maths and science schooling. Current public
and private sector efforts are insufficient to significantly
change the system that is failing individuals, families,
communities, and the country
We must introduce a comprehensive programme that
provides for systemic change, involves public and
private sector leadership and resources, achieves short-
term results, and is implemented via an effective and
accountable institution
CDE proposes the formation of a public–private
partnership in the form of a National Task Force for the
improvement of maths and science education in
South Africa
This project has been funded by the Anglo American Chairman’s Fund, the
AngloGold Ashanti Fund, the BHP Billiton Development Trust, the De Beers
Education Trust, the FirstRand Foundation, the Joint Education Trust, the Liberty
Foundation, Murray & Roberts Holdings Limited, the Shuttleworth Foundation,
and the Zenex Foundation.
PREVIOUS TITLES
1. Post-apartheid population and income trends: a new analysis (September 1995)
2. South Africa's small towns: new strategies for growth and development (May 1996)
3. Cities and the global economy: new challenges for South Africa (October 1996)
4. Durban: South Africa's global competitor? (October 1996)
5. The East Rand: can South Africa's workshop be revived? (June 1997)
6. People on the move: lessons from international migration policies (June 1997)
7. People on the move: a new approach to cross-border migration in South Africa (June 1997)
8. Pretoria: from apartheid's model city to an African rising star? (July 1998)
9. South Africa's 'discarded people': survival, adaptation, and current policy challenges (October 1998)
10. Policy-making in a new democracy: South Africa’s challenge for the 21st century (August 1999)
11. Johannesburg, Africa’s world city: a challenge to action (October 2002)
12. Key to growth: supporting South Africa’s emerging entrepreneurs (June 2004)
Cover photograph by Gisèle Wulfsohn/South Photographs
Produced by Riaan de Villiers and Associates
CDE RESEARCHPOLICY IN THE MAKING
BOARD
E Bradley (chair), F Bam (deputy chair), S Ndukwana (deputy chair),
A Bernstein (executive director), N Angel, F Antonie,
C Coovadia, O Dhlomo, W Esterhuyse, M Keeton, A Lamprecht,
J Latakgomo, R Lee, P Lourens, A Mandewo, J McCarthy, R Menell, I Mkhabela,
K Mthembu, M Mthembu, W Nkuhlu, A Oberholzer, M O’Dowd, F Phaswana,
R Plumbridge, D Ramaphosa, L Schlemmer, N Segal, J Seutloadi,
C Simkins, G Smith, M Spicer, T van Kralingen
INTERNATIONAL ASSOCIATE
Peter L Berger