Strategy for Racial Integration Strategy for Racial Integration Copyright Department of Education 2006 All rights reserved. You may copy material from this publication for use in non-profit education programmes if you acknowledge the source. For use in publications, please obtain the written permission of the Department of Education. Enquiries: Director-General Department of Education Sol Plaatje House 123 Schoeman Street PRETORIA Private Bag X895 PRETORIA 0001 Tel: Fax: E-mail: (012) 312 5080 (012) 326 1909 values@doe.gov.za ISBN: 1-77018-089-3 Published by the Department of Education, December 2005 Design and layout: Formeset Digital, Tshwane (012) 324 0607 Strategy for Racial Integration Contents Contents Introduction ............................................................................. 1 A Strategy for Racial Integration ...................................... 3 Rationale ................................................................................. 3 Aims of the Strategy ................................................................ 4 Principles that underpin the Strategy ...................................... 4 Strategic Approach................................................................ 6 A Framework for Action ...................................................... 8 Prevention ............................................................................... 8 Policies ............................................................................... 9 Clear procedures ................................................................ 11 Rights and responsibilities .................................................. 11 Leadership, governance and staff profiles ........................... 12 Curriculum ......................................................................... 13 Teacher development and support...................................... 14 Learner/Student development and support ........................ 15 Intervention ............................................................................. 16 Teams for crisis intervention ............................................... 16 Sanction............................................................................. 17 Support, Monitoring and Evaluation ....................................... 18 Monitoring and evaluation ................................................. 19 Support: Parent and community involvement ..................... 20 Implementation Plan............................................................. 21 Phasing of Strategy .................................................................. 21 Conclusion ................................................................................ 22 References ................................................................................ 23 Strategy for Racial Integration Introduction Introduction The demise of apartheid in 1994 was heralded nationally and internationally as a victory for democracy and human rights. It offered unique opportunities and responsibilities to reconstruct a fragmented and deeply discriminatory education system, and establish a unified national system underpinned by democracy, equity, redress, transparency and participation. This social reconstruction had to be linked to economic development in the context of global economies and internationalisation. These dual goals are aptly captured in the mission statement of the Department of Education: "Our vision is of a South Africa in which all people have equal access to lifelong education and training opportunities which will contribute towards improving the quality of life and build a peaceful, prosperous and democratic society." (DoE 1996) The reconstruction of post-apartheid South African society has been based on removing the scaffolding of apartheid and replacing it with a new system based on the well-being, respect and affirmation of all South Africans. Educational reforms aimed at the dismantling of apartheid education have been central aspects of this reconstruction effort. In order to facilitate reconstruction, the South African government placed great emphasis on the development of policies to redress the legacy of racial disparities and inequalities left by apartheid. The democratic government embarked upon a project that strongly asserts the responsibility of the government, in partnership with civil society, to develop a framework and environment for the emergence of a new national character. The government committed itself to reclaiming the 1 history and culture as the solid foundation for building a sense of meaning and vision for its people. In education, the South African Schools Act of 1996 repealed the many discriminatory laws that existed under the apartheid system, establishing a national non-racial, non-discriminatory education system. The eighteen racial departments of education were dismantled and one national department of education with nine provincial departments was created. However, important challenges still characterise the education system. South Africa is still faced with challenges of racism and inequality. These challenges also manifest themselves in education institutions. Despite a number of advances and the enactment of progressive legislation to hasten desegregation, media and various other reports on racism indicate that many institutions and communities still struggle with racial integration. Racial outbursts at places like Vryburg, Richmond, Delmas, Groblersdal, Potgietersrus and Edgemead attest to this fact. These incidents have also invariably characterised the responses to racial discrimination in the education sector. Responses to racism in education have often been incident-based, reactive and ad hoc. This underlines the need for a co-ordinated, integrated strategy and implementation plan to ensure the full and successful racial integration of all education institutions. 2 Strategy for Racial Integration A Strategy for Racial A Strategy for Racial Integration Integration Rationale Education is fundamentally a character forming and developmental activity that often occurs through the values that are either consciously or unconsciously modelled by the education system. Values promotion and acquisition are inevitable aspects of education underlying the formal selection of outcomes, teaching methods, assessment, classroom processes, authority relationships, and the selection of contexts and examples to advance learning. A nation emerging from apartheid cannot think of values in education independently of the deep racism embedded in the apartheid curricula and education systems. The apartheid system was intended, overtly and implicitly, to link concepts of ability and potential for learning to culture and race, and hence to build and reinforce particular social structures and hierarchies. Those habits and underlying values need to be reversed through the promotion of anti-racism, inclusivity, human dignity, equity and democracy. Reducing the deeply embedded race, gender, class and institutional inequities which still characterise our education system remain a constant challenge. The challenge is to go beyond the 'numbers game' of merely opening formal access for disadvantaged groups into a static system and set of institutional cultures. Opening formal access should be accompanied by building institutions that accommodate and adapt to different identities, needs and experiences. Institutions should also be challenged to transform the restrictive aspects of their historic organisational cultures. This strategy has been developed to assist institutions to deal with the challenges of integration. It is based on the values that celebrate and 3 promote diversity. The strategy is also premised on a need for the development of a platform for a collective vision for the future. Furthermore, it is rooted in the lessons of our past and intends to move the country into a common, non-racial and democratic future. Aims of the Strategy The Strategy on Racial Integration, is located within the broader context of the Values in Education Initiative and aims ● To combat racism and other forms of discrimination and build integrated education institutions, which are integrated as institutions and as a part of the larger South African society. ● To develop education institutions that are aligned with the principles of the Constitution. ● To provide concrete measures to deal with all forms of division and discrimination which present a challenge in education, for example, ethnicism or discrimination towards young people living with HIV/ AIDS. ● To serve as a tool for planning and management in all education institutions in South Africa, as all institutions should teach learners how to live and work in an integrated society. ● To promote reconciliation, social cohesion and nation building. Principles that underpin the Strategy Consistent with the Constitution and the Bill of Rights, the Strategy focuses on the values of equity, tolerance, openness, accountability and social honour. More specifically, the strategy is based on the following principles: ● Racism and discrimination of any form is illegal and should be decisively dealt with. ● Racial integration is a positive feature of education in the post-apartheid South Africa that should be encouraged. 4 Strategy for Racial Integration ● Racism is a negative feature, to be counterposed with reconciliation, African pride and peace. ● All human beings are equal, irrespective of class, colour, religion, gender and other categories. ● Diversity in student and staff profile is a strength and should be celebrated. ● Equity is a central pillar in ensuring that differing educational needs are catered for and the legacy of past discrimination taken into account. This implies a clear rejection of race and ethnic based approaches. ● An active stance is adopted, where all individuals, irrespective of colour, class or religion, are seen as participants in the process of promoting racial integration. ● Education institutions and schools in particular, are microcosms of society and therefore communities should be involved in dealing with issues of racism and discrimination. All individuals, irrespective of colour, class or religion, are seen as participants in the process of promoting racial integration. 5 Strategy for Racial Integration Strategic Approach Strategic Approach The strategy will be phased so that it addresses, a. Institutions where there is existing racial tension, as reported in the media and from departmental and other reports b. Institutions where there is potential for conflict, as reported in the media and other sources c. All education institutions to reflect the ethos and principles of the Constitution in their policies and practices. d. District offices, regional offices, provincial and national departments of education to reflect the ethos and principles of the Constitution in their policies and practices. The Strategy on Racial Integration will address all aspects of discrimination, especially racial discrimination, ethnic/tribal divisions, gender inequalities, and xenophobia. The strategy is targeted at: ● Education systems (district offices, regional offices, provincial and national departments of education) ● All levels of the system (GET, FET, including FET colleges, and Higher Education Institutions) ● Institutions (principals, management teams, teachers and other staff, students and learners) ● The community (staff, parents, caregivers, governance structures, students/learners and community based organisations) The Strategy aims to go beyond just an awareness of racism, but to also provide learners/students with experiences that confront and cultivate values in action: critical thinking, personal expression, a local sense of meaning, and expanded ways of thinking and communicating. Finally, 6 Strategy for Racial Integration the strategic approach will be a combination of: ● Encouragement of good practice, dialogue and persuasion; and ● Monitoring, pressure and sanction. 7 Strategy for Racial Integration A Framework for A Framework for Action Action This framework recognises that the contexts in which institutions operate, and the level of development of education institutions with regard to racial integration, differ. Accordingly, the framework accepts that institutions can be broadly classified into three categories: ● Institutions that are overtly racist and refuse to change; ● Institutions that practice subtle discrimination; and ● Institutions that recognise their weaknesses, but struggle to cope with the challenges posed by diversity and integration. This framework for action targets all these categories of institutions. The following aspects form an integral part of the framework and targets institutions, as well as education systems: ● Prevention; ● Support, Monitoring and Evaluation; and ● Intervention. Prevention Prevention aims to remove and address potential barriers to integration before they become areas of conflict. It thus attempts to resolve underlying causes of potential conflict. Prevention will focus on the following areas: 8 ● Policies ● Clear procedures ● Rights and responsibilities ● Leadership, governance and staff profiles Strategy for Racial Integration ● Curriculum ● Teacher development and support ● Learner development and support Policies Institution Level ● Recognise that the culture of the institution might be operating to exclude certain groups that were historically disadvantaged. ● Review all policies and practices to remove all barriers to learning and participation in educational activities. Note in particular how language of instruction, extra-curricular offerings, fees and uniform choices impact on the accessibility of the institution to previously marginalised groups. ● Offers school enrichment programmes (sports, arts and culture) that cater for all learners/students. ● Is aware how restrictive admissions-, language- and religious policies impact on racial integration. ● Extends its catchment area in an attempt to promote integration. ● Strive to minimise discriminatory practices by collectively rewriting existing policies. Ensure that all role-players are involved in establishing the values that undergird the new policies. ● Implement institutional policies, procedures and practices that do not discriminate, directly or indirectly against any individual or group on the basis of their race, ethnicity, culture, language or religion. ● Implement policies to ensure that all members of the community (principals, management teams, teachers, other staff, learners/ students, SGBs, parents, caregivers System Level ● Review institutional policies, procedures and practices to ensure they do not discriminate, either directly or indirectly, against any individual or group on the basis of their race, ethnicity, gender, language or religion. ● Establish policies and guidelines which clearly articulate principles and procedures to counter racism including clear procedures for the resolution of complaints of racism. ● Review recruitment, selection and promotion procedures to ensure that they are inclusive and encourage the employment of people according to employment equity legislation. ● Establish policies that support the more equitable participation of learners from all backgrounds in education. ● Provide guidelines to institutions on how to develop policies that will affirm all groups. 9 Institution Level and community based organisations) understand their rights and responsibilities in relation to racist behaviour and in contributing towards the development of institutions which value diversity and are free of racism. 10 ● Ensure policies are in place for reporting on and responding to incidents of racism and that all members of the community are aware of the procedures and how to access them. ● Involve members of the community in policy development and review. System Level Strategy for Racial Integration Clear procedures Institution Level System Level ● Establish clear procedures for dealing with incidents of racism, racial discrimination and harassment. ● Establish clear procedures for dealing with incidents of racism, racial discrimination and harassment. ● Have these procedures recorded in the code of conduct for learners/ students. ● Ensure that these procedures are supplied to all institutions. ● ● Ensure that all learners/students understand the procedures clearly. Ensure that all officials and institutions are familiar with the procedures. ● Identify a member of staff to ensure that these procedures are followed. ● Identify one official at district and provincial levels to ensure that the procedures are adhered to. Rights and responsibilities Institution Level ● Ensure that all learners and members of staff understand their rights and responsibilities with regard to racial discrimination. ● Ensure that these rights and responsibilities are clearly recorded in the institution's policies. ● Ensure that parents and the community are aware of these rights and responsibilities. System Level ● Ensure that the rights and responsibilities as contained in the Constitution and education legislation are made accessible to all institutions. ● Encourage institutions and districts to translate these rights and responsibilities into practical activities. ● Emphasise that all groups have the responsibility to make racial integration work. ● Encourage and provide mechanisms for communities to report incidents of discrimination and abuse. 11 Leadership, governance and staff profiles Institution Level 12 System Level ● Staff appointments and promotions are fair and in line with employment equity legislation. ● Staff appointments and promotions are fair and in line with employment equity legislation. ● Attempts as far as possible to reflect the demographics of the learner population in the leadership, governance and staff profile of the institution. ● Senior management appointments reflect the demographics of the country/province. ● All new staff, especially from previously disadvantaged groups, are supported on an ongoing basis. ● The diversity and historical experiences of the staff are recognised and drawn on as resources. Strategy for Racial Integration Curriculum Institution Level System Level ● Implement teaching and learning programmes that challenge racist attitudes and behaviour and increase learner understanding of the effects of racism and discrimination. ● Provide curriculum materials and resources that challenge racist attitudes and behaviours and increase learner understanding of racism. ● Implement teaching and learning programmes to increase learner understanding of reconciliation, social cohesion and nation building ● ● Evaluate all teaching and learning materials and assessment practices to ensure they are not biased and are inclusive of the needs of all learners. Provide curriculum materials and resources that recognise and value the unique place of all South African cultures, histories, languages and societies. ● Provide programmes to support learners from diverse backgrounds. ● Review curriculum, assessment practices and resources to ensure that they are inclusive of the educational needs of learners from diverse backgrounds. ● Implement teaching and learning programmes that address the specific cultural and linguistic needs of learners/students. ● Provide programmes that require learners/students to operate in diverse groups. ● Investigate and review learner achievement data to inform the development of teaching and learning programmes. 13 Teacher development and support Institution Level 14 ● Incorporate education programmes to counter racism into institutional training and development plans. ● Encourage all staff to participate in valuing diversity and cross-cultural awareness training and to examine their own behaviour for discrimination. ● Promote good practice through supporting staff to share expertise in strategies to counter racism. ● Encourage staff to participate in inclusive curriculum training programmes and to critically evaluate their own teaching practice for inclusiveness. System Level ● Provide training programmes in nation building, social cohesion, reconciliation and strategies to counter racism. ● Provide support and training for teachers in inclusive teaching practice and programme design. ● Provide training for staff in supporting learners who are involved in racist incidents. ● Enhance workplace productivity and service provision by fully utilising the skills, talents and varying perspectives of staff from diverse backgrounds. ● Provide leadership and management training to all staff. Strategy for Racial Integration Learner/Student development and support Institution Level ● Encourage the participation of all learners/students on the Representative Council for Learners/ Students so that they reflect the diversity of the institution. ● Encourage students from diverse backgrounds to participate in learner/ student leadership and development programmes. ● Provide opportunities for learners/ students from all backgrounds to discuss issues of racism, diversity and reconciliation, social cohesion and nation building. ● Provide learner/student support services that are appropriate and information on educational pathways that is free of prejudice and stereotyping. ● Promote good examples of learner/ student involvement in developing successful initiatives to counter racism. ● Encourage learners/students from diverse backgrounds to interact within the institution and between institutions, through sports and arts and culture. System Level ● Develop guidelines for learner/ student representative bodies to ensure they are inclusive and provide a balanced representation. ● Provide training for learner/student representative bodies in nation building, social cohesion, reconciliation and strategies to counter racism. ● Provide opportunities for learners/ students to become involved in developing and evaluating system-wide initiatives to counter racism. ● Provide learner/student support services that are appropriate for all learners/students. 15 Intervention Intervention aims to deal with instances where the challenges of racial integration have manifested themselves as barriers to learning and teaching. It is often necessary in cases where issues have festered or where there is an unwillingness to implement government policy, to intervene in order to ensure that the right of learners/students to quality education is protected. Intervention focuses on the following two areas: ● Teams for crisis intervention, to deal with racial hotspots; and ● Sanction, in cases where institutions deliberately disregard policy. Teams for crisis intervention Institution Level ● An institution-based team to develop and co-ordinate a crisis intervention strategy. ● ● ● 16 System Level ● The institution based team to be inclusive of the gender and race composition of the institution. Response teams, consisting of national, provincial and district representatives to be set up to deal with incidents. ● The team should include representatives of parents, the community and learners/students. Teams to investigate the nature of the problem and recommend a particular course of action. ● The objective of the team should be to stabilise the institution to ensure that learning and teaching continue whilst an intervention strategy is implemented. A report should be provided by the team to the district/province on how an incident has been dealt with. Strategy for Racial Integration Sanction Institution Level ● Institution management is obliged to take action when an alleged racial incident is reported, including suspending the alleged perpetrator. ● Perpetrators of racial harassment, should be counselled as far as possible. All such cases, as well as the type, date and place of the counselling and intervention provided should be recorded. ● In cases where racial bullying and harassment continue despite regular attempts to mediate, appropriate sanctions as per learner/student and educator (SACE) codes of conduct to be instituted. ● Cases of racial harassment should be reported to the district/province. ● Community leaders from diverse backgrounds are drawn on to mediate and arbitrate when the need arises. System Level ● Provisions of the law should be invoked in cases of overt racial discrimination and harassment. ● Sanctions for racial discrimination and a definition of what constitutes such discrimination, should be made available to all institutions and districts/provinces. ● The voices of previously marginalised groups should be heard when intervention strategies are devised. ● Periodic assessments of the effectiveness of parent and community consultation mechanisms should be conducted. ● Information about developments at institution, district and provincial levels should be provided to education communities in a language that is accessible. 17 Support, Monitoring and Evaluation Support refers to the efforts of the Department of Education to assist institutions that have embarked on programmes that aim to improve racial integration and the life chances of all learners/students in their care. Monitoring and Evaluation refer to the responsibility of both institutions and the wider education system to monitor the extent to which efforts to transform our institutions have succeeded, and to constantly evaluate and review the efficacy of our policies and practices. The Department of Education needs to develop a comprehensive monitoring and evaluation framework to strengthen monitoring of access to, exclusion from and participation in human rights to education in society. This framework will identify indicators, and should be developed in consultation with key partners such as the National Forum Against Racism, the Human Rights Commission and Statistics South Africa. The rights to education would need to be clearly articulated. 18 Strategy for Racial Integration Monitoring and evaluation Institution Level ● The principals of institutions should record all racial incidents. ● All recorded incidents to be reported to the parents, the governing body/council and the district/ province. ● Dropout and through-put rates to be recorded according to race. ● Statistics based on race to be recorded in terms of participation in mathematics, science and sporting and extra-mural activities. ● Statistics of learners/students denied admission to an institution to be recorded according to race. ● The numbers of learners granted exemption from school fees to be recorded according to race. ● Determine responsibilities for monitoring and reporting on racism and the incidence and resolution of complaints within the institution. ● Seek feedback on effectiveness of education initiatives to counter racism and report on outcomes. System Level ● Develop system-wide procedures for monitoring and reporting on initiatives to counter racism. ● Monitor the incidence and resolution of complaints of racism within systems and institutions. ● Monitor the participation of staff in training programmes designed to counter racism. 19 Support: Parent and community involvement Institution Level ● Parents and community members should be provided with information on their rights and responsibilities in relation to racism and education to counter racism. ● Encourage representation of parent and community groups from all backgrounds in the development and evaluation of policies, guidelines and procedures. ● Institutions should draw on community resources and skills in the development of activities to counter racism, institution planning and decision-making processes.· ● ● Institutions should use interpreters, translations and community support staff in partnership with staff to provide information to parents in a language they understand. Provide support to institutions to ensure they are able to communicate effectively with their diverse communities, including the use of interpreters, translations and community support staff. ● Encourage institutions and their communities to celebrate key national and community events. ● Establish community consultation and advisory mechanisms on racism in education and remove barriers to participation for identified learner/ student groups. ● 20 System Level Institutions should encourage the participation of parents and community members of all backgrounds in all institutional activities including activities to counter racism, institutional planning and decision-making processes and representation on governance structures. Strategy for Racial Integration Implementation Plan Implementation Plan Phasing of Strategy a. Short to medium term: 20062008 u Finalise a manual on integration to support the Strategy, as well as providing guidelines to Institutions on how to deal with the challenges of education in a democratic state. u Launch a Whole School Development Project targeting ten institutions per province that are struggling with the challenges of integration. u To advocate the Strategy on Racial Integration by providing mechanisms for communities to report incidents of racial discrimination through which complaints may be speedily addressed. u Improve the systemic network of support to all institutions by assisting institutions to form partnerships with local communities, and provinces to identify dedicated personnel/units to deal with the challenges of integration. u Develop a monitoring system with clearly defined indicators in conjunction with social partners and other stakeholders. u To promote diversity and anti-racism training through inset and preset programmes for both educators, managers and district and provincial support staff. u Provide RNCS Implementation Support with regards to anti-racism curriculum and pedagogical development. b. Long term: 20082011 u Assessment of the impact on institutions u Progress towards reconciliation u Where are we at the end of the decade? 21 Strategy for Racial Integration Conclusion Conclusion The education system has a significant role to play in ensuring that our learners are equipped to become productive, proud and active citizens in the new, post-apartheid South Africa. Educational institutions are microcosms of society, and are bound by the policies of the new democracy to provide all learners/students with the opportunity to realise their true potential, and for all learners/students to develop in an atmosphere of respect and dignity. Furthermore, the school/college/ university is the springboard from which learners/students acquire the knowledge, skills, values and attitudes, with which to negotiate the challenges and potential presented by our rich and varied multicultural society. The long-term assistance of organisational development specialists would be invaluable in guiding the development of the Department of Education as a learning organisation with the attitudes, values and characteristics outlined in the Constitution. Such organisational development interventions must be integrated into the service delivery and organisational development programmes of departments of education, which should be developed in addition to current activities around strategic planning, and would combine interventions related to managing systems, people, and resources in a holistic fashion. 22 Strategy for Racial Integration References References Centre for the Study of Violence and Reconciliation (CSVR) 2002. Building Integrated Classrooms; an Educators' Guide. Johannesburg: CSVR. Constitution of the Republic of South Africa 1996. Deacon, J. 2002. Heritage and African History. 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Hilton-Barber, B. and Berger, L. 2002. The Official Field Guide to the Cradle of Humankind. Cape Town: Struik. 23 Lombaard, K. 2003 Revisiting Reconciliation: The People's View. Institute for Justice and Reconciliation Mangcu, X. 2003. From a Parent's Point of View. In The SA Reconciliation Barometer; Tracking Socio-Political Trends, Vol 1 no 2. Mpumalanga Department of Education. 2001. Report on Diversity in Educational Institutions. Naidoo, J. 1996. Racial Integration of Public High Institutions in South Africa; A Study of Practices, Attitudes and Trends. EPU Research Paper. University of Natal, Durban. National Education Policy Act 1996. Norms and Standards for Educators 2000. NSW Department of Education. (2000) Racism No Way; a Guide for Australian Institutions. www.racismnoway.com.au Porteus, K., Valley, S. and Ruth, T. 2002. Alternatives to Corporal Punishment; Growing Discipline and Respect in our Classrooms. Cape Town: Heinemann. 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