implementation of integrated quality management systems in
TRANSCRIPT
Implementation of integrated quality management systems in selected
schools, Cofimvaba Education District
by
YOTSI MELEKELI
Student No. 210109238
Submitted in partial fulfilment of the requirements for the degree Master of Public
Administration in the Faculty of Arts at Nelson Mandela Metropolitan University
Supervisor: Dr K. Asmah-Andoh
January 2014
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i
DECLARATION
NAME : MELEKELI YOTSI
STUDENT NUMBER : 210109238
QUALIFICATION : MPA
TITLE OF PROJECT : Implementation of Integrated Quality Management
Systems in Selected Schools, Cofimvaba Education
District.
DECLARATION:
In accordance with Rule G4.6.3, I declare herewith that the above-mentioned
treatise/ dissertation/ thesis is my own original work and has not previously been
submitted for assessment to another University or for another qualification.
SIGNATURE: _____________________________________
DATE: January 2014
[ii]
ACKNOWLEDGEMENTS
I wish to express my appreciation and gratitude to the following people who
contributed to the research:
Dr. Kwame Asmah-Andoh, my supervisor, for his keen interest, motivation and
encouragement, guidance and positive and friendly criticism. His inspiring words
and continuous motivation ensured the success of this study.
My colleagues, comrades and friends, who encouraged and supported me during
the course of the study, particularly staff at the Nelson Mandela Metropolitan
University.
All the respondents for their input; thank you very much.
Special thanks to my family, my dearest wife Zukiswa and sons Sihle, Inga and
Asemahle for enduring my studies while frequently missing fatherly love and for
the harmonious climate they helped to create in the family during my studies.
Finally, to Almighty God for giving me strength, patience and resilience during
testing times.
[iii]
ABSTRACT
This study evaluates the implementation of Integrated Quality Management System
(IQMS) policy to improve the quality of teaching and learning at schools in the
Cofimvaba Education District.
IQMS involves the measurement and evaluation of teacher performance for
developmental purposes and to reward the best performers in order to improve
teaching. A qualitative research approach was adopted and data was collected using
questionnaires distributed and retrieved from schools in order to determine
educators’ experience of IQMS implementation. The data were then analysed using
constant comparative methods.
The findings indicate that most participants agreed with the objectives of the policy
and felt that it should be retained to evaluate teacher performance for accountability
purposes and improved teaching and learning results. The system has the potential
to develop educators if is implemented honesty and as long as educators trust the
evaluation processes to identify weaknesses and strengths. A key recommendation
is that IQMS should be part of the school management team’s responsibilities, which
must report quarterly on implementation.
[iv]
LIST OF ABBREVIATIONS AND ACRONYMS
DoE : Department of Education
DeT : Department of Education and Training
DAS : Developmental Appraisal System
DTT : District Task Team
DSG : Developmental Support Group
ELRC : Education Labour Relations Council
INSET : In-service Education and training
IQMS : Integrated Quality Management System
NAPTOSA : National Professional Teachers Organisation of South Africa
NEEDU : National Education Evaluation and Development Unit
NPFTED : National Policy for Teacher Education and Development
NUE : National Union of Educators
PM : Performance Management
PMDS : Performance Management and Development System
PRP : Performance Related Pay
OBE : Outcome Based Education
SACE : South African Council of Educators
SADTU : South African Democratic Teachers Union
SDT : School Development Team
SIP : School Improvement Plan
SMT : School Management Team
WSE : Whole School Evaluation
[v]
TABLE OF CONTENTS PAGE
Declaration…………………………………………………………………………………... ..... i
Acknowledgements………………………………………………………………………… ...... ii
Abstract……………………………………………………………………………………… ..... iii
List of Abbreviations…………………………………………………………………… ........... iv
CHAPTER ONE
INTRODUCTION AND RESEARCH BACKGROUND
1.1 Introduction …………………………………………………………………………… ...... 1
1.2 Background to the problem ………………………………………………………...... .... 2
1.3 Problem statement .................................................................................................. 4
1.4 Research questions ................................................................................................. 4
1.5 The purpose of the research ................................................................................... 5
1.6 Objectives of the study ............................................................................................ 5
1.7 Pertinent literature review ........................................................................................ 5
1.8 Delimitations of the study ........................................................................................ 7
1.9 Ethical considerations ............................................................................................. 7
1.10 Conclusion ............................................................................................................ 8
1.11 Chapter overview .................................................................................................. 9
CHAPTER TWO
THE NATURE AND PLACE OF INTEGRATED QUALITY MANAGEMENT
SYSTEMS IN PUBLIC ADMINISTRATION
2.1 Introduction ........................................................................................................... 10
2.2 Conceptualising integrated quality management systems ..................................... 11
2.3 Definition of IQMS ................................................................................................. 11
2.4 Integration ............................................................................................................. 12
2.5 Quality ................................................................................................................... 13
2.6 Quality management ............................................................................................. 14
[vi]
2.7 Performance Appraisal .......................................................................................... 13
2.8 Formative and Summative evaluations ................................................................. 14
2.9 Educator evaluator ................................................................................................ 15
2.10 Performance measurement ................................................................................. 15
2.11 Life cycle of IQMS implementation ...................................................................... 16
2.11.1 An overview of research studies on IQMS ....................................................... 18
2.11.2 Legislative framework for IQMS ....................................................................... 22
2.12 Integrated quality management system as public policy ..................................... 24
2.13 Implementation of integrated quality management system policy ....................... 25
2.14 Challenges in IQMS policy implementation ......................................................... 26
2.15 Evaluating IQMS Policy ....................................................................................... 27
2.16 The Systems theory ............................................................................................ 28
2.17 New Public Management paradigm ..................................................................... 30
2.18 Conclusion .......................................................................................................... 32
CHAPTER THREE
RESEARCH METHODOLOGY AND DATA COLLECTION METHODS
3.1 Introduction ........................................................................................................... 33
3.2 Permission to conduct research ............................................................................ 33
3.3 Research design ................................................................................................... 34
3.4 Research instruments ........................................................................................... 35
3.5 Research methodology ......................................................................................... 36
3.6 Research Design ................................................................................................... 37
3.7 Qualitative research methodology ......................................................................... 38
3.8 Respondent selection ............................................................................................ 39
3.9 Population ............................................................................................................. 40
3.10 Sample ................................................................................................................ 41
3.11 Sampling procedures .......................................................................................... 42
3.12 The survey questionnaire .................................................................................... 42
3.12.1 Advantages of questionnaires .......................................................................... 44
3.12.2 Areas that require attention in using a questionnaire ...................................... 44
3.13 Data collection procedure .................................................................................... 40
3.14 Data analysis ....................................................................................................... 45
[vii]
3.15 Conclusion .......................................................................................................... 45
CHAPTER FOUR
DATA ANALYSIS, INTERPRETATION AND PRESENTATION OF IQMS
IMPLEMENTATION
4.1 Introduction ........................................................................................................... 45
4.2 Data analysis ......................................................................................................... 45
4.3 Key areas of the questionnaire .............................................................................. 47
4.4 Demographic details of participants ...................................................................... 48
4.5 Analysis of policy compliance ................................................................................ 50
4.6 Feelings of respondents………………………………………………………………52
4.7 The impact of IQMS on the quality of teaching and learning ................................. 52
4.8 Views of educators on IQMS implementation ........................................................ 54
4.9 IQMS implementation in schools ........................................................................... 55
4.10 Should IQMS be linked to a rewards system? ..................................................... 55
4.11 Should IQMS be linked to professional development? ........................................ 56
4.12 Framework for IQMS School planning .................................................................. 56
4.13 Other quality Assurance Mechanisms in schools ................................................. 57
4.14 Strengths of IQMS Implementation……………………………………………….58
4.15 Weakness of IQMS………………………………………………………………….58
4.16 Opportunities of IQMS .......................................................................................... 59
4.17 Threats of IQMS ................................................................................................... 59
4.18 Conclusion .......................................................................................................... 59
CHAPTER FIVE
CONCLUSION AND RECOMMENDATIONS
5.1 Introduction ........................................................................................................... 61
5.2 Summary of the study ............................................................................................ 61
5.3 Findings of the study ............................................................................................... 62
5.4 Recommendations ............................................................................................... 64
5.5 Conclusion……………………………………………………………………………...65
[viii]
6. LIST OF SOURCES ................................................................................................ 66
7. ANNEXURES .......................................................................................................... 75
[ix]
LIST OF ANNEXURES
ANNEXURE 1 Research Questionnaire 74
ANNEXURE 2 Application to conduct research at Cofimvaba schools 78
ANNEXURE 3 Permission to conduct research at Cofimvaba schools 79
LIST OF TABLES AND DIAGRAMS
FIGURE 1.1 Model of political System 6
FIGURE 2.1 Composite score sheet for level one educator 16
FIGURE 2.1.1 IQMS Management cycle 17
FIGURE 2.2 Systems theory 28
FIGURE 3.1 Cofimvaba District School based Map 41
FIGURE 4.1 Age Levels of Respondents 48
Table 4.1 Teaching experience of respondents 49
FIGURE 4.2 Years of experience in IQMS 49
FIGURE 4.3 Gender of respondents 50
Table 4.3 Position held by respondents 51
Table 4.3 Position held by respondents 51
Figure 4.3 Position held by respondents 51
Table 4.4 IQMS implementation processes completed at school since 2006 52
Table 4.5 Effectiveness of IQMS 52
[x]
Table 4.6 Impact of IQMS on educators 53
FIGURE 4.4 The impact of IQMS on respondents 54
Table 4.5 Feeling of respondents 54
Table 4.8 Effectiveness of IQMS 56
Table 4.7 school implemented IQMS 57
Table 4.8 Linking IQMS with performance rewards 58
1
CHAPTER ONE
INTRODUCTION AND BACKROUND
1.1 INTRODUCTION
This study evaluates the implementation of IQMS policy to improve the quality of
teaching and learning in the Cofimvaba Education District. A public policy is a
purposively selected, goal-oriented course of action which has to be implemented to
produce specific results. In terms of Schedule 1 of the Province of the Eastern Cape
Employment of Educators Act, 76 of 1998, IQMS involves the measurement and
evaluation of employee performance in order to improve the management of
schools, improve the quality of teaching and learning and reward employees
(Thomas, 2005:16). The literature on IQMS for employee performance appraisal
discusses its value and at the same time indicates that the implementation of IQMS
for personnel appraisal is not always effective.
Anderson (2007:4) describes public policy in terms of problem-solution and states
that it is a relatively stable, purposive course of action followed by an actor or set of
actors to deal with a problem or matter of concern. As a human phenomenon, policy
implementation has inherent problems. One of the features of public policy is that it
is an anticipated solution to a problem. In other words, policy is made for the future.
As such, new and unanticipated problems may be encountered during
implementation. Furthermore, due to time, information or expertise constraints,
public policies are sometimes framed in general terms, and the formulation of the
details of the policies for implementation purposes is left to the implementers, who
may substitute their views for those of the policy-maker (Hanekom, 1992:61).
The Cofimvaba District Education office reports indicate that some schools have
been implementing the IQMS policy for a period of five years with varying results
(Cofimvaba District Education Office Report on IQMS, 2010). This study therefore
aims to evaluate the implementation of the IQMS policy for school and educator
development and to improve the quality of learning and teaching in the Cofimvaba
Education District. This chapter will firstly outline the background to the study.
2
Secondly, the study problem will be introduced together with the research questions
and research objectives. Thirdly, a theoretical framework for analysing policy
evaluation and analysis and the research methodology will be presented.
1. 2 BACKGROUND TO THE PROBLEM
In line with policy directives and regulations, the IQMS has been introduced in
schools in the Cofimvaba Education District for the past five years. Public policies
emerge in response to policy demands; and as variously defined, tend to have some
common objectives as outcomes and a specific course of action. The objectives of
the IQMS policy are in line with the transformation of education in South Africa
following the multi-party democratic dispensation of the early 1990s. Public policy
and its implementation are thus also evaluated for their impact and the challenges
they confront with a view to ascertaining whether the policy achieves its goal and
makes any difference (Hanekom, 1992:89).
The decision to transform the South African education system was taken by the
Council of Education Ministers in February 1997, with the purpose of improving the
quality of the country’s education system. In line with the policy, Outcomes-based
Education (OBE) was introduced to bring about changes in the education system.
This represents a paradigm shift from the traditional education system. The
traditional education system inherited from the apartheid era was criticised for not
improving the culture of teaching and learning in the country. Van der Waldt, Van
Niekerk, Doyle, Knipe and Du Toit (2002:315) note that OBE has two key purposes:
all students are equipped with the knowledge, competencies and qualities
needed to be successful after they exit the educational system; and
the need to structure and manage educational institutions so that these outcomes
can be achieved and maximized for all students.
The previous system of education management had also been criticised as being
teacher-centred and therefore not appropriate for improving and developing a culture
of learning and teaching that is beneficial to students. To overcome these problems,
the South African Department of Education and the Education Labour Relations
3
Council (ELRC) introduced IQMS in the form of a Developmental Appraisal System
(DAS) as part of the process to improve school management. Evaluation of
individual educators aims to determine the strengths and weaknesses of each
educator as a means of improving the culture of learning and teaching in schools.
IQMS in schools was also based on a national policy on the Whole School
Evaluation System passed in 2001 which was designed to evaluate the effectiveness
and functionality of the whole school, including the quality of teaching and learning
using the performance appraisal of educators. The objectives of the policy include
utilization of performance appraisal information to reward individual educators in
terms of their remuneration and grade progression, and confirmation of
appointments as a basis for rewards and incentives (IQMS Manual, 2005).
Performance appraisal is an important component of IQMS and aims to improve both
the professional development of teachers and the management of schools
(Bollington, Hopkins and West, 1990:2). This is based on the assumption that an
educational institution controls the conditions that directly affect effective teaching
and learning based on effective performance and can be improved through educator
appraisal in the form of IQMS and the utilization of performance information to better
manage the institution.
Public policies enacted by legislatures are processed in government institutions at
national, provincial and local spheres of government over time. The fact that each
environment is unique could create challenges for the implementation of the policy.
Critics of the IQMS and the performance appraisal process find it to be flawed in
various ways; however, most do not reject the rationale for having such systems in
the first place (Asmah-Andoh, 2012:48). Public policy implementation has been
described as what happens after a bill becomes law (Anderson, 2000:201). Policy
implementation can thus be defined as the stage where the intentions, objectives
and course of action selected by the policy-maker are put into effect. This study thus
aims to examine how the policy has enhanced the development of educators and the
improvement of teaching and learning by analysing and evaluating the
implementation of the policy and how this influences the overall institutional
management system in order to improve teaching and learning.
4
The area selected for the study is the Cofimvaba Education District in the Eastern
Cape Province. The area is demarcated as one of the administrative districts in the
province and groups together 275 public schools. As indicated, the Cofimvaba
Education District report on IQMS, 2010 indicates that 50 of the 275 public schools in
the district are reported to have implemented IQMS over the past five years or more.
These schools were selected for this study. The selection also allows for comparison
with other schools which have not implemented the policy.
1.3 PROBLEM STATEMENT
The problem for this study relates to the evaluation of IQMS implementation in order
to improve and develop employees and the quality of learning and teaching in
schools, and the extent to which personnel appraisal and the utilization of appraisal
influence and improve teaching and learning in schools in the Cofimvaba Education
District.
1.4 RESEARCH QUESTIONS
What challenges confront the selected schools in the implementation of IQMS?
To what extent do these challenges impact on educator and school performance?
How does IQMS implementation influence the quality of teaching and learning in
schools?
1.5 THE PURPOSE OF THE RESEARCH
The purpose of this study is to develop an effective understanding of the challenges
in implementing IQMS and how to achieve better results. Understanding IQMS will
assist school managers, educators and other participants in the education system to
improve performance
5
1.6 OBJECTIVES OF THE STUDY
The study’s objectives are to:
Evaluate the process of the implementation of IQMS policy in the Cofimvaba
Education District;
Analyze the nature and scope of the influence of personnel appraisal on the
development and improvement of quality of teaching and learning in schools;
Draw conclusions and make recommendations on the utilization of IQMS to
appraise employee development, provide rewards and improve school
management and the quality of teaching and learning.
1.7 PERTINENT LITERATURE REVIEW
An evaluation and analysis of the implementation processes of IQMS in the selected
schools is necessary to ascertain whether and to what extent the policy has
achieved the stated objectives, and whether the policy should be continued,
abandoned, or replaced with an alternative course of action (Doyle, 2002:191). The
study utilizes systems theory to analyse the challenges of IQMS implementation. An
illustrative diagram of the political systems theory is provided below:
6
Figure 1.1 A model of the political system
The Environment
Inputs Outputs
Demands
Laws
Political System
Support
Decisions
Feedback
Anderson, 2007: 18
Political systems theory is associated with David Easton. It states that public policies
result from demands made on the political system by the public (Easton, 1957:141).
The political system receives these demands as inputs which are then processed by
the public institutions concerned through management and other tools. The result as
the output is received by the public and can be indicated in two ways, either
acceptance or rejection of the policy. These reactions are once again received by
the political system as feedback (Anderson, 2007:17-19; Bayat & Meyer, 1994:86-
88). In the analysis, the feedback on the policy’s impact emanates from how
educators, school management teams and coordinators perceive the extent to which
implementation has achieved the policy objectives.
A process approach was used to analyse the design, implementation and control
mechanism of IQMS in the Cofimvaba District. IQMS is a product of the total quality
management concept, a management theory defined by Thompson (2002:164), as a
holistic approach in pursuit of the goal of continuous improvement. The New Public
Management paradigm was employed to provide theories on the introduction of
IQMS in schools as public government institutions.
7
1.8 DELIMITATIONS OF THE STUDY
A distinction should be drawn between the limitations and de-limitations of the study.
The limitations describe the factors and circumstances that hamper or delay the
study, for example a lack of time and money. The purpose is not to disparage the
quality of the research project, but rather to enable the reader to judge the validity of
the study results.
The de-limitations of a study are the same as the scope of the study. They set the
limits, including the theoretical and physical boundaries of the study. Delimitations
are thus used to explain the extent of the matters to be dealt with within a specific
geographical area, the breadth of concrete instances to which the theory applies and
the physical boundaries of the study – the place where the study will be conducted –
the Cofimvaba Education District in the Eastern Cape Province. The study focused
on the implementation of IQMS at selected schools in the Cofimvaba Education
District in the Eastern Cape and not on other aspects of the policy process.
However, the policy content will be analysed as part of the legislative background to
the implementation of the policy.
1.9 ETHICAL CONSIDERATIONS
According to the Oxford Advanced Learners Dictionary (1995: 395) ethics is a
system of moral principles or rules of behavior or conduct. An ethical research study
needs to conform to accepted professional practices. Bailey (1982: 428) writes that
“it is generally agreed that it is unethical for researchers to harm anyone in the
course of research, especially if it is without the knowledge of the person and
permission” In the course of the research, ethical guidelines and practices should be
strictly adhered to and the respondents’ rights and privacy must be protected.
The study respondents were assured that the information they provided in the
questionnaires would be treated with the utmost confidentiality. They were informed
that the information would not violate their privacy and that they had the right to raise
concerns regarding the study at any time. The researcher’s telephone numbers were
provided to the respondents to enable them to report any problems regarding the
study. Participants were provided with the necessary information to assist them to
8
understand the study and what was expected of them. They were also ensured of
confidentiality and anonymity as they were not required to provide their personal
details.
Participation in this research study was entirely voluntary. Those who agreed to
participate had the right to withdraw at any time. This study aims to assist the
Department of Education in its endeavour to develop educators in order to improve
the standard of education. The findings and recommendations will be made known to
the participants.
1.10 CHAPTER OVERVIEW
The final report of the study is presented in five chapters organised as follows:
Chapter 1: Introduction and background to the study
This chapter introduced and provided a background to the study. It also covers the
research problem and the objectives of the study, and presents a preliminary
introduction of the literature review for the study.
Chapter 2: Review of literature
The chapter provides a conceptual and theoretical framework for the research. It
analyzes the legislative and policy guidelines for the implementation of IQMS in
schools in contemporary South Africa.
Chapter 3: Research methodology
This chapter outlines the research methodology and design adopted for the study,
and the sample and sampling procedures, as well as the data collection instruments.
Chapter 4: Analysis and interpretation of data
This chapter focuses on the presentation, analysis and interpretation of the collected
data.
9
Chapter 5: Conclusion and recommendations
The chapter makes recommendations and provides suggestions for further research
on the implementation of IQMS in schools.
1.11 CONCLUSION
The study evaluates the implementation of IQMS policy that aims to improve the
quality of teaching and learning in schools. This chapter presented the background
to the study and the context of the research problem. The objective of the study was
outlined as to investigate the implementation of IQMS, identify challenges and
provided recommendation for effective teaching. The role of IQMS in public
organisation was detailed by using systems theory explaining the link of political
system policy influence and performance of public organisation. The impact of IQMS
policies in individual and organisational performance was detailed in the study. The
reforms in public management were also presented by using New Public
Management approach. This was linked to IQMS policy implementation in the
selected schools. The chapter also identify the area where the study was conducted
and respondents ethical considerations.
The chapter also outlined the theoretical framework within which the research
problem and questions will be analysed and briefly presented the research design
and the methodological paradigm adopted for the study, as well as the research
instruments to solicit respondents’ views. These will be expanded on in the different
chapters of this research report.
10
CHAPTER TWO
THE NATURE AND PLACE OF INTEGRATED QUALITY MANAGEMENT
SYSTEMS IN PUBLIC ADMINISTRATION
2.1 INTRODUCTION
This chapter provides an in-depth literature review on IQMS. The legislative
framework that guides the implementation of IQMS in the Eastern Cape Province will
be discussed, as well as the conceptualization of public policy implementation,
processes, output and challenges in public schools. The systems theory analysis
designed by David Easton (1957) will be used to determine the cause and effect of
public policy implementation challenges in Cofimvaba schools and the context of
New Public Management in the governance and administration of schools. A
theoretical discussion is presented on the importance and relevance of IQMS and
the importance and relevance of IQMS in public organizations. Finally, the historical
development of performance management policy and its integration and alignment
with the National Department of Education is traced.
Journal articles, books, research reports, the government gazette and other relevant
documents shed light on different theories and reflections on IQMS. The literature
review will assist in identifying gaps in policy implementation and developing a new
framework for IQMS implementation.
This chapter firstly begins with a conceptualization of IQMS as a performance
management tool. Secondly, the chapter analyzes the suite of legislation and policy
guidelines on quality management and performance management in the South
African public sector in general and in schools falling under the Department of
Education in particular. Finally, it positions the study within the functional area of
public staffing in the discipline of Public Administration. The systems theory which is
applicable to many human endeavors will be applied to explain the processes and
implementation of IQMS
.
11
2.2 CONCEPTUALISING INTEGRATED QUALITY MANAGEMENT SYSTEMS
In developing a frame of reference for IQMS, theorizing involves the analysis of data
in order to develop a conceptual system. Data collection for a research study
requires a basis for reasoning and a frame of reference to guide and evaluate such
data. A conceptual framework is a workable scheme for the classification of data that
make it possible to deal with universals rather than with particulars. This allows the
classification and identification of questions on the degree or level of increase that
determines the performance and challenges in implementing IQMS in public
institutions, such as Cofimvaba schools.
The question of the extent to which the performance management system (IQMS)’s
programmes impact and influence its utility, the design of the steps comprising the
system, and the method of collecting data and their utilization are important aspects
of a performance management system. Asmah-Andoh (2012:52) writes that
guidelines for the establishment of performance management in public institutions
need to overcome some of these conceptual difficulties, and also to meet the
requirements of effectiveness and efficiency associated with the practical side of
these systems. This provides the justification for the research study.
2.3 DEFINITION OF IQMS
The IQMS is a government policy that came about as a result of collective
agreement in the Education Labour Relations Council, a bargaining chamber for
teachers’ unions and government representatives. This system aims to align different
quality management programmes in order to enhance and monitor the performance
of the education system. All quality management initiatives should be planned for
together in schools, and aligned in a coherent way to avoid duplication, repetition
and an unnecessary increase in workload. The purpose of IQMS is five-fold:
To determine competence,
To assess strengths and areas for development;
12
To provide support and opportunities for development to ensure continued
growth;
To promote accountability; and
To monitor an institution’s overall effectiveness.
IQMS seeks to amalgamate the Development Appraisal System (DAS), Performance
Management System (PMS) and Whole School Evaluation (WSE). The IQMS
Manual (section A:3) indicates the purpose of each programme as follows:
The DAS appraises individual educators in a transparent way to determine areas
of strength and weakness and to draw up programmes for individual
development.
The PMS evaluates individual educators for salary progression, confirmation of
appointments and rewards or incentives. A PMS essentially refers to the
management of poor performance and rewarding good performance in an open,
fair and objective manner.
WSE evaluates the overall effectiveness of a school, including the support
provided by the district, community, management, infrastructure and learning
resources. WSE includes the quality of teaching and learning (system
evaluation).
2.4 INTEGRATION
The IQMS Manual (section A: 3) indicates that the amalgamation of these three
programmes into one policy has already been achieved through the collective
bargaining processes. The purpose of the IQMS policy was to provide practical
guidelines on the improvement of individual and organizational performance.
Integration involves internal embeddedness and external interactions with
stakeholders in order to secure continuous improvement in performance, bring about
competitive advantage and move towards sustainable development.
13
2.5 QUALITY
The concept of quality can be understood and defined in many ways. Greenwood
and Gaunt (1994:13) define quality in education as …the continuous improvement of
systems to enable the optimum state of personal, social, physical and intellectual
development of each individual which will result in society and colleague loyalty now
and then. There is also the question of the extent to which the integrated IQMS
programmes impact and influence its utility, the design of the steps comprising the
system, the method of collecting data, and their utilization as important aspects of
this integrated system. Asmah-Andoh (2001:52) writes that guidelines for the
establishment of performance management in public institutions need to overcome
some of these conceptual difficulties, and to meet the requirements of effectiveness
and efficiency associated with the practical side of a performance management
system. This justifies the need for this research study, as an IQMS includes a
performance appraisal system.
2.6 QUALITY MANAGEMENT
The tenets of IQMS are underpinned by the purpose of quality management systems
which is to determine competence, and assess the strengths and areas for further
development in order to ensure continued growth (Senge, 1990), promote
accountability and monitor the overall effectiveness of an institution (Kaplan &
Norton, 1996). Quality comes about through process improvements intended to
make a sustainable difference to the outcome of these processes (Murgatroyd &
Morgan, 1993: xi). Measurement is a central component of quality initiatives and
quality programmes (Kaplan & Norton, 1996:119).
Quality management goes hand in hand with performance management in order to
achieve a quality product. Swanepoel, Erasmus and Schenk (2008:372) define
performance management as a process that contributes to the effective
management of individuals and teams, in order to achieve high levels of
organizational performance. Swanepoel et al. (2008:372) add that performance
management can be regarded as a non-time-specific, on-going endeavour that
14
involves the planning, managing, review and development of individual and group
performance.
2.7 PERFORMANCE APPRAISAL
Grobler, Warmich, Carrell, Elbert, and Hatfield (2000:260) define performance
appraisal as an on-going process of evaluating and managing both behavior and
outcomes in the workplace. Appraisal refers to evaluation or assessment using
criteria or standards. Performance analysis is undertaken in order to prepare for
further interventions to improve teacher performance. An evaluation process involves
the procedures to follow during evaluation, and an instrument that explains the roles
of the evaluator and educators in evaluation. One of the problems of evaluating
teachers’ quality is that the criteria one employs differ among people. Some will base
their choice on emotional reasons, while others will base their decision on a
teacher’s particular subject knowledge. The decision as to whether performance is
good, average or poor involves human judgment which can be subjective; this
essentially refers to evaluation. Thus we use the term evaluation when determining
work performance as an aspect of the quality assurance of teachers. Hopkins and
West (1990:2) assert that appraisal is increasingly a feature of teachers’ professional
lives; a properly constructed and presented appraisal system can improve both the
professional development of teachers and the management of schools.
2.8 FORMATIVE AND SUMMATIVE EVALUATIONS
Formative assessment refers to the performance before interaction or development
processes have taken place to determine individual needs or gaps in reaching the
set standard. Summative evaluation is the final assessment which is conducted after
all phases of development have taken place. A final score is given to individual
educators to determine performance rewards.
Stronge (2006:107) maintains that formative and summative assessment cannot be
separated or seen as two discrete categories. Ongoing evaluation provides
opportunities for further assistance during summative evaluation and thereafter for
continuous professional learning development. This approach would provide
15
employees with a single, consolidated view of the organization, with transparent links
to process governance, risk ratings and visible internal and external quality and
compliance requirements.
2.9 EDUCATOR EVALUATION
The IQMS Manual (2005:10; Grobler, 1993:92) defines “teacher evaluation as a
function of human decision-making, resulting from a value judgment about how good
or weak a particular work performance is, using information that compares the actual
work performance with predetermined performance standards and that is followed by
feedback to the teacher about how good or weak the work performance is”.
De Clercq (2008); Gryna (2001) and Class Act (2007) state that combining appraisal
for development and performance management using a common appraisal
instrument weakened the objectives of IQMS.
2.10 PEFORMANCE MEASUREMENT
This refers to the standards of performance against which individual educators are
measured. In terms of the IQMS Manual (Section A:3), performance standards 1 to 4
measure classroom practice, that is, the creation of a positive learning environment,
knowledge of the curriculum and learning programme, lesson planning and lesson
presentation and learner assessment. Educators who are not managers are obliged
to fulfil seven performance standards without fail, participate in the assessment and
development of other teachers, contribute to human relations and whole school
development and participate in co-curriculum and extra curricula activities. Managers
from the level of Head of Department, Principals and Deputy Principals are expected
to perform 12 standards of performance which include administration of resources,
personnel management, leadership and decision making and strategic planning.
The following composite score sheet is used for performance measurement of level
one educator
16
Table: 2.1 Level 1 Educator’s Score sheet
PERFORMANCE STANDADS MAXIMUM ACTUAL SCORES
Creation of positive learning environment 16
Knowledge of curriculum and learning
programme
16
Lesson planning, preparation and
presentation
16
Learner assessment 16
Professional development in the field of
work/career and participation in
professional bodies
16
Human relations and contributions to
school development
16
Extra-curricular and co-curricular
participation
16
Total score 112
IQMS Manual, 2005: 89. Exemplar C
The measurement/assessment/evaluation of educators aims to determine the overall
level of performance of employees during a particular period or year. Performance
refers to an employee’s accomplishment of assigned tasks, whilst performance
management refers to the total process of observing an employee’s performance in
relation to job requirements over a period of time, i.e., clarifying expectations, setting
goals, providing on-the-job coaching and training, storing and recalling information
about performance, and appraising it.
2.11 LIFE CYCLE OF IQMS IMPLEMENTATION
IQMS has predetermined performance standards, criteria or norms that educators
should adhere to when teaching and learning takes place. An improvement plan is
expected where gaps or underperformance have been identified. A Personal Growth
17
Plan (PGP) is drawn up by educators after their strengths and weaknesses have
been identified. The Developmental Support Group (DSG) is responsible for
observing work performance and obtaining information or data about it; the School
Management Team (SMT) plays an integral role in this process. Summative
evaluation involves the evaluation of work performance using a process of decision-
making and judgment. Final scores are allocated in order to determine rewards or
punishment for poor performance. Feedback is provided on the work performance
and the required corrective measures.
Figure: 2.1 The IQMS Management Cycle
(Source document): IQMS Manual, 2003:75
PHASE: 5
Reflection on poor
performance
Rewarding &
PHASE:1 Planning
(December‐
February)
PHASE 2 First
development
cycle
(Coaching &
Mentoring)
PHASE 3
Second
Developmen
t cycle
PHASE: 4 Final
assessment (Oct‐
Nov)
IQMS
Implementation
Cycle
18
The phases illustrated in the diagram above are discussed below, as they link to
IQMS (IQMS Manual, 2003: A,3).
Planning for IQMS implementation starts in December to February. A School
Improvement Plan (SIP) is developed as a guiding document that set targets,
timeframes and the persons responsible to achieve the school’s goals. SIPs are
informed by the PGPs of all educators in the school. Developmental needs or gaps
in performance standards are identified for corrective measures to be implemented.
The DSG and School Development Teams (SDTs) conduct peer assessment and
whole school evaluation simultaneously. During the second and third quarters of the
year, coaching and mentoring take place through interaction with peers, the SMT,
district officials and IQMS coordinators. Final assessment takes place in October to
November and is called summative evaluation. Teacher support groups are
expected to allocate scores or a final rating which informs pay progression and
rewards. The understanding of the processes of coordination within an organization
and the tasks involved in management, in other words, integrated management also
has to be based on the generic aspects of management like: policy, planning,
implementation, corrective action and management review; this is known as the
“plan-do-check-act” (PDCA) cycle. The focus is on the process rather than the
structures and systems; this underlines the need for today’s organizations to be
innovative with a focus on continuous improvement in performance. The generic
processes in management systems also emphasize commitment on the part of top
management, the definition of a policy, planning of objectives and targets,
procedures, audits, documentation and records control, control of non-compliance,
corrective and preventative actions, and management review.
2.11.1 An overview of Research Studies on IQMS
A review of the literature revealed that available implementation reviews of IQMS
focus on the effectiveness of IQMS, teachers’ perception of the policy, quality
assurance, how schools manage IQMS implementation, and educator career stages,
concerns and disposition towards IQMS. This study explores the link between
accountability for performance and evidence-based evaluation on the one hand, and
enhancing professional development as well as the maintenance of professional
19
autonomy on the other. The literature suggests that the simultaneous
implementation of professional development and accountability is responsible for
evaluators’ dilemma regarding their role in teacher evaluation in schools.
Ramnarian (2008) concluded that the mechanical aspects of IQMS relating to
“performativity” undermine the potential of IQMS as a genuine professional
development tool. She further argued that if IQMS were to be used for the latter
purpose, this would inevitability lead to enhanced teaching and learning. She added
that South African teacher evaluation policy, which is genuinely developmental, must
take into account both the professional development needs of educators and the
socio-economic environment of schools. The National Education, Evaluation and
Development Unit (NEEDU) 2009:09 reported that teachers are tempted to focus on
the rewards system attached to performance appraisal.
Effective performance management requires employees and supervisors to work
together to set performance expectations, review results, assess organizational and
individual needs, and plan for the future. IQMS was borne out of policy review and
has the potential to develop and support educators. It is one of the regulatory
frameworks required to fulfil compliance regulations. This suggests the need for
greater accountability to the public on the part of both the educator and the school.
Webster’s seventh New Collegiate Dictionary defines accountability as giving an
account, being answerable to and being capable of being accounted for. Leithwood
and Edge & Jantzi (1999:13) point out that the term ‘account’ entails “giving a report
on, furnishing a justifiable analysis and explanation, providing a statement of
explanation of one’s conduct, offering statement, or exposition of reason, causes,
grounds or motives or simple providing statements of facts or events”.
According to Barathwanth Biputh (2008:14), the implementation of IQMS raises three
primary issues: implementation for compliance, for accountability to participants and
for training and development. Compliance dialogue constructs IQMS as bureaucratic
and time consuming, while the dialogue on accountability constructs IQMS as a
mechanism that promotes accountability to stakeholders with regard to teaching and
learning. The development and training dialogue constructs IQMS as the continual
improvement of skills in order to enhance the quality of education. The review of
20
policy implementation challenges ensures that the performance appraisal system is
continually evolving to suit the needs of individuals and institutions’ development.
The review of the policy aims to enhance the development of educators and improve
teaching and learning by analyzing and evaluating the implementation of the policy
and how this influences the overall institutional management system to improve
teaching and learning.
Collective Agreement No 4 of 1998 aimed to facilitate the personal and professional
development of educators in order to improve the quality of teaching practice and
education management in schools. This became a pillar to transform the old system
of inspection as it introduced a democratic organizational culture for teacher
evaluation, measurement and development. It was expected that this policy would
create a positive teaching and learning culture, commitment and trust amongst
school community members. The implementation of the DAS has been confronted
by a range of policy implementation challenges, resulting in non-implementation and
non-achievement of the set aims and objectives. This study examines the problems
encountered in the implementation of this policy and the implications thereof.
Hargreaves (1999:10) points out that teachers are reluctant to engage in classroom
observation, which means that the quality management system, accountability
policies and procedures exhibit some weaknesses that need to be addressed if
teacher appraisal is to be used to improve teaching and learning.
The then Minister of Education, Professor Kader Asmal (September 1990) argued
that there was no national system for evaluating the performance of schools and no
comprehensive data on the quality of teaching and learning or on the educational
standards achieved in the education system as required by the National Education
Policy Act 27, 1996. This led to the introduction of the third leg of the IQMS known as
WSE. WSE is a collaborative and transparent process of making judgments based
on evidence of the holistic performance of a school measured against agreed
criteria.
The strength of such a process for the school community is firstly to conduct self-
evaluation, using agreed upon tools, standards and guidelines as described in the
WSE policy (2003). WSE offers tools for evaluation and a built-in mechanism for
21
reporting findings and providing feedback to the school, government, parents and
society at large on the level of performance of the school. The transformation of
education in South Africa emphasizes quality education for all (Education White
Paper, 1995). The first intent is to redress the discriminatory, imbalanced and
inequitable distribution of education services under apartheid and, secondly to
develop a world-class education system to meet the challenges of the 21st century,
Therefore the introduction of performance management and development systems
for schools was an endeavor and a vehicle to achieve such vision. This vision is
encapsulated in a number of legislative policy documents which define standards of
efficiency.
The National Education Policy Act (1996, p27) mandates the Minister of Education to
direct that standards of education provision, delivery and performance be monitored
and evaluated by the department annually, or at specific intervals in order to assess
progress in complying with the provisions of the Constitution of the Republic of South
Africa and national education policies. A further relevant piece of legislation is the
National Policy for Teacher Education and Development in South Africa (NPFTED)
(DoE, 2007) realised by the then Minister of Education, Naledi Pandor.
This policy document acknowledges the need for educator development but remains
silent on how the plan is to be implemented for high quality teacher development.
Pandor asserted that IQMS is not implemented properly by the provinces. In
response, teacher unions attributed this to a lack of necessary resources and in-
service training for educators. This study aims to encourage teachers to shift from
regarding IQMS as judgmental to seeing it as a developmental process intended for
their professional development that can positively influence the quality of teaching
and learning in South African schools. Teachers can only improve if their schools are
supportive and schools can only improve if they are adequately supported by the
department; the system can be certainly improved if education delivery in the
classroom improves.
22
2.11.2 Legislative Framework for IQMS
IQMS is a government policy as stipulated in schedule 1 of the Employment of
Educators Act (EEA) No 76 of 1998. This Act requires a teacher to perform
according to set standards; educator performance is evaluated on a regular basis in
order to improve professional practice for quality teaching and learning. The EEA
was supported by resolution 8 of the National Education Labour Relations Council of
2003. IQMS integrated the DAS, PMS and WSE systems.
The Constitution of the Republic of South Africa, 1996 section 195(h), promotes
good human resource and career-development practices in order to maximize
human potential. Therefore, the IQMS has been promulgated in order to ensure
compliance and accountability to the public about the performance of schools. The
South African Schools Act, 1996 section 20(1)(a) mandates school governing bodies
to promote the best interests of the school and strive to ensure its development
through the provision of quality education.
The EEA, Section 3, Chapter C introduced the DAS which determines the terms and
conditions of employment of educators. This system was intended to appraise
individual educators in a transparent manner with a view to determining strengths
and weaknesses and formulating development programmes (Loock, Grobler &
Mestry, 2006:64). The DAS aimed to facilitate the personal and professional
development of educators in order to improve the quality of teaching practice and
education management. The following features define the DAS: legitimacy, flexibility,
feasibility and simplicity. The implementation of the DAS requires the following:
Learning culture at institutions
Democratic organizational climate
Commitment of educators to development
Openness and trust
The purpose of performance measurement is to evaluate individual teachers for
salary progression, grade progression, confirmation of appointments and rewards
23
and incentives (Loock et al., 2006:64). Summative evaluation determines the link or
qualification for pay or grade progression in IQMS processes.
There are four main characteristics of performance measurement:
Performance management is a process rather than an event; it should permeate
the organizational culture on a daily basis and must not be considered an annual
form filling exercise to gain instant reward.
The process should be used to generate increased understanding of what the
organization is trying to achieve.
It is a way of managing people that ensures that objectives are achieved through
appropriate lines of accountability.
Performance management is about people sharing in the success of the
organization to which they have contributed.
Performance measurement systems have recently been the subject of considerable
attention and they are expected to provide numerous and important advantages in
the workplace. The following are some of the positive effects of performance
management:
Collaboration between employer and employee with positive behavior
Creation of a competitive environment among employees to perform their work in
the shortest time, at the lowest cost and with the highest quality level.
A decision-making tool that allows managers quick and reliable access to
employee performance, and to monitor the overall performance of their
organization.
A human resource management tool that motivates employees to perform better.
Cost reductions through a decrease in the number of administrative personnel,
office space, and equipment, archiving space, etc.
Assists the organization to make the best use of resources, such as time, cost,
manpower, machinery and materials.
24
The ELRC (2003:3) defines the purpose of WSE as the evaluation of the overall
effectiveness of the school, management, support from the department,
infrastructure, and learning material as well as the quality of learning and teaching.
Collective Agreement No. 3 of 2002: Performance Management and Development
System for Office Based Educators, aimed to identify, evaluate and develop office-
based educators’ performance. This agreement applies to and binds the employer
and all employees as defined in the EEA, 1998 whether or not such employees are
members of the trade unions party to the agreement.
The implementation of the PMS and DAS is envisaged to be completed within a
calendar year. Both PMS and DAS are intended to strengthen WSE. The overall
purpose of these policies was to improve the quality of teaching practice, and build
commitment and trust amongst schools. Gordon (2006, p268) argued that, “it is
essential that professional development and accountability should be combined for
purpose of unity and coherence for an effective evaluation”. Therefore the ELRC,
2003:3 explains that the core of these quality assurance initiatives lies in the
measurement of the work performance of the individual educator.
IQMS is a democratic process for monitoring the performance of individual educators
by DSGs which is also a support group for the educator (ELRC, 2002; DoE, 2003:
DoE, 2005). School Management Team currently participates in various DSGs
without leading and accountability. Accountability for poor or the good performance
of an educator was not part of the principal’s responsibility. This runs counter to the
Education Law Amendment Act of 2007:12 that states that, principals are managers
of school resources, both physical and financial, educators and curriculum
implementation.
2.12 INTEGRATED QUALITY MANAGEMENT SYSTEMS AS A
PUBLIC POLICY
The concept policy is used in so many fields of activity that one would not expect its
definition to be a simple matter. There have been numerous studies of public policy
and aspects of it such as environment policy. However, there is no general
agreement on the definition of public policy. Cameron (1991:131) notes that not only
25
is there little agreement as to what constitutes public policy, when it comes to the
subject matter of public policy as a concept, there is a wide range of disparate
definitions. However, Dye (1995:3) observes that scholars tend to agree on the
goals of public policy, namely, the maintenance and improvement of human welfare.
Anderson (2007:4) examines public policy in terms of problem-solution and states
that it is a relatively stable, purposive course of action followed by an actor or set of
actors to deal with a problem or matter of concern. Dye (1995:3) adds that
realistically, the notion of public policy must include all actions of government, as well
as the inactivity of government; indeed public policy is what governments choose to
do, or not to do. It is contended that government inaction, that is, what governments
decide not to do, can have just as great an impact on society as government actions.
De Coning (in Cloete & Wissink 2006:11) looks at public policy in terms of resource
allocation; the authoritative allocation through the political process, of values to
groups or individuals in the society.
2.13 IMPLEMENTATION OF INTEGRATED QUALITY MANAGEMENT SYSTEM
POLICY
The concept of public policy, as variously defined, tends to have specific objectives
which are the outcomes and the implications of the policy for the environment. The
following may be deduced: Firstly, public policies are purposive or goal-oriented.
This means that they are designed to accomplish specified goals or produce specific
results, although these may not always be achieved. As noted, this is due to the fact
that every public policy is formulated in response to or in order to prevent a problem
likely to occur that has been identified in the environment (Anderson, 2007:5-6).
Secondly, public policies enacted by legislatures are processed in government
institutions. This could be at national, provincial and local spheres of government.
Consequently, implementation occurs over time, which could also have an impact on
the success or otherwise of the policy. This is because policies are enacted to be
implemented in the future. Thirdly, policy implementation is described as what
happens after a bill becomes law; this requires a further process, where those who
determine and implement the policy and those who are affected by the policy
26
determine if it has really worked. This study analyses the implementation of the
policy of IQMS in selected schools, and its influence in improving learning and
teaching in order to ascertain the extent to which implementing the policy has made
any difference (Hanekom, 1992:89).
The purpose of introducing IQMS policy was to address the problems associated
with teaching and learning identified as part of the reason for poor performance in
schools. Implementation involves officials in the Department of Education and
schools who put the law into effect; it is therefore necessary to examine policy
implementation processes in order to evaluate the results and effect improvement
where necessary (Cloete, in Doyle 2002:191: Anderson, 2007:201).
2.14 CHALLENGES IN IQMS POLICY IMPLEMENTATION
As a human phenomenon, policy implementation is confronted by inherent problems.
One of the features of public policy is that it is an anticipated solution to a problem.
In other words policy is made for the future. As such, new and unanticipated
problems may be encountered during implementation. Furthermore, due to time,
information or expertise constraints, public policies are sometimes framed in general
terms, and the formulation of the details of the policies for implementation purposes
is left to the implementers, who may substitute their views for those of the policy-
maker (Hanekom, 1992:61). Policy needs to be reviewed continuously to address
such unintended problems. In some instances, there may be few incentives for
public managers to correctly implement policies, especially if there is no link to the
Department’s performance management system. A lack of consultation amongst
stakeholders and insufficient transparency can also hinder effective implementation.
Public policy implementation needs to be effective if the identified problem is to be
addressed and in order to improve living standards. The policy to be implemented
should be translated so that it is understood correctly. It needs to be mediated
through continuous implementation workshops to create clarity and more
understanding of the policy objectives. Public officials who implement the policy
could have contributed to its initiation. Their views and biases should not be
27
disregarded; instead the intention of the policy-maker should be considered. Policies
are usually written in legal language, and officials, especially if they have no legal
training, may experience difficulty in translating them into everyday language which
the public can understand.
The translating of the policy should identify its objectives, the definition of the issue
to be addressed or solved by the policy, and any unintended conflicts or new
problems arising from the policy. Policy implementation is a process on its own that
requires the thorough engagement of relevant participants for the benefit of the
public. In systems theory, inputs, processes and outputs work interdependently and
feedback is necessary to ensure that the process of feedback continues.
There should be sufficient resources available to implement the policy. The
provision of financial resources, materials and personnel to government institutions
at national and lower tiers of government for the execution of specific tasks could
enhance policy implementation. Policy should be implemented as an orchestrated
effort by the policy implementers. Legislators, public officials, courts of law, interest
groups and the public should work together to ensure successful implementation.
Important aspects to consider in this regard are communication and co-operation
among all parties, and delegation of authority to all units involved in policy
implementation.
2.15 EVALUATING IQMS POLICY
There will always be some differences between the objectives of the policy and what
is actually achieved. In other words, policy outputs (what was delivered) and actual
policy impacts (results and effects) are often not the same (Hanekom, 1992:90).
Consequently, policy evaluation is necessary to complete the policy-making cycle.
Evaluation involves reporting findings and making judgments on the merits of policy.
Departmental and programme officials will be alert to the possible political
consequences of evaluation. If the results do not come out right from their
perspective or worse, if the results are negative and come to the attention of
28
decision-makers, their programmes, influence, or careers may be thrown into
jeopardy. Consequently, programme officials may discourage or refuse to operate
evaluation studies, refuse access to data, or keep incomplete records. The quality of
the evaluation of policy outcomes can, however, be improved by devoting attention
to and applying some flexibility in the inclusion of certain criteria (Hanekom, 192:96):
This study employs the systems theory to analyze the implementation of the IQMS in
Cofimvaba schools.
2.16 THE SYSTEMS THEORY
The study utilizes the systems theory to analyse the implementation challenges
confronting the IQMS. Dye (1984:40) argues that systems theory can be used to
evaluate performance for the rendering of services and management improvement.
A system can be thought of as an organized whole, made up of parts, which are
connected and directed to some purpose (Terry, 1977:27). Systems are thus basic to
human activities. The systems theory has essential phases or components, and it
takes place in a specific environment. Each systems theory has input, processes,
and output (Dye, 1984:41). Skyttner (1996:17) agrees that a system is a set of
interacting units or elements that form an integrated whole that is intended to
perform some function. A general systems theory is concerned with developing a
systematic framework of interrelationships among the components of the natural and
the man-made world (Weaver, 2002:17).
Figure 2.2: Systems theory in integrated quality management system
iIinwN
External environment
Feedback Mechanism
Internal Environment
System
Input Out put
29
Source: Anderson, 2007:18
The systems theory depicted above suggests that a system receives input from the
external and internal environments. The output is the end result of the processes
within the system. Public, political and social environments that put pressure on the
education system to improve school performance are part of input. Public institutions
such as schools operate within a particular environment which must be considered
when conducting performance and developmental appraisal systems.
A feedback mechanism provides a formal evaluation to check the relevance of the
system; this can be either formative or summative. To be effective and efficient, a
system needs review which acts as a feedback mechanism to ascertain whether the
output of the system is what it should be; if not, a system should have the ability to
adjust its input or processes to improve the output. A feedback mechanism in an
IQMS may be automated or manual. This research study therefore aims to establish
the effectiveness of the IQMS policy in addressing performance management related
issues. Some feedback skills that could improve the effectiveness of work
performance are:
Attempting to develop a flexible relationship of trust as this encourages dialogue.
Paying careful attention to listening skills.
Paying continual attention to the conceptual skills that are required for promotion.
Setting combined improvement goals and making sure that the teacher receives
the necessary training to overcome her/his weaknesses.
Using well thought out questions so that the teacher tells the evaluator about
her/his weaknesses without the evaluator having to mention them.
Always giving feedback about positive performance achievement first.
The diagram of systems theory clearly shows that performance evaluation takes
place within a system and should not be seen as an isolated step. The school is the
place where education takes place and socio-political factors and administrative
functions exert pressure for change. These factors do not coalesce with the
responsible determination of work performance and as such they are not part of
teacher evaluation. As noted, one cannot change one part of the system without
influencing other parts in some way. The model further indicates a severe
shortcoming in most teacher evaluation systems throughout the world; that is, the
30
design and implementation of evaluation systems are regarded as two separate
steps, although they are part of one function. According to Skyttner (1996:17), the
systems theory refers to basic human activities as it encompasses inputs,
processes, outputs and impacts of the environment.
Furthermore, due to time, information or expertise constraints, public policies are
sometimes framed in general terms, and the formulation of the details of the policies
for implementation purposes is left to the implementers, who may substitute their
views for those of the policy-maker (Hanekom, 1992:61). Policy needs to be
reviewed continuously to address such unintended problems.
The evolution of public administration provides the context in which IQMS operates
within the development of the New Public Management paradigm. This paradigm is
utilized to provide an explanation of the relevance of performance management in
public organizations.
2.17 New Public Management Paradigm
New Public Management refers to the distinctive themes, styles and patterns of
public service management like the IQMS that have been adopted in the past two
decades (Steven and Boonsyk, 2001:487). When New Public Management reforms
were introduced in various countries, one central element was the balance between
political control and administration of institutions, and professional autonomy in the
development of the New Public Management system (Hood, 1995:93). South Africa
introduced New Public Management in the early 1980s. Wessels and Pauw
(1999:344) suggest that, since its inception, two issues have come to the fore. The
first was to adhere to the traditional approach and the second was striving to
introduce innovative and new content into the academic efforts and actions of public
administration. In support of the latter point of view, Martinez (2001:04) points out
that the term performance management was first used in the 1970s; however, it did
not become a recognized process until the latter half of the 1980s.
Concurrent with these developments, education reform has been a national and
global phenomenon since the early 1980s, with a major focus on managerial
restructuring to produce a more responsive and efficient system (Liang and Howard,
2007:393). Contemporary theories in public administration, such as the New Public
31
Management suggest a move towards a business style of public management. Pilot
and Bouckact (2004:65) argue that the doctrinal components of the New Public
Administration consist among other things, of a move towards measurable (or at
least checkable) standards for public organizations. These components are more
prominent in the business environment. The Organization for Economic Co-operation
and Development (OECD) lists a group of managerial features in its New Public
Management model of reform: developing authority; providing flexibility; ensuring
performance; control and accountability; optimizing information technology;
developing competition and choice; improving quality of regulation; improving the
management of human resources; and providing responsive services (Gantam,
2008:03).
The New Public Management also emphasizes accountability, whereby government
must be held answerable to the public - thereby ensuring the best interests of all
citizens. In terms of accepted conventions or legally prescribed process,
accountability has evolved to become an enduring and fundamental principle of the
Westminster system in modern liberal democracies (Funell, in Dahanayake,
2008:33). A review of the performance measurement literature and legislation
reveals that accountability and performance improvement appear to be
interchangeable objectives that are the expected benefits of the introduction of
performance measurement as a regulatory activity in public entities (Torres et al.,
2011:1082). Section 195(1)(f) of the South African Constitution clearly states clearly
that public administration must be accountable to the people it serves. Hildebrand
and McDavid (2011:42) observe that the early 1990s saw a rapid change in public
governance and management. Performance measurement for both accountability
and management was the key theme. Public administration reform is increasingly
guided by performance-based rakings, as a means of improving efficiency and
value-for-money in public service delivery (Dai, 2007:11). In the education sector,
reform implies that an IQMS is in place to secure a higher degree of teaching and
learning and improved efficiency, effectiveness, economy and appropriateness.
32
2.18 CONCLUSION
This chapter examined the contextual background of IQMS and the legislative
framework that informs its implementation. The concepts of IQMS, DAS, PMS and
WSE that are linked to performance management and control were discussed. The
implementation challenges confronting DAS and PMS and subsequent public
pressure led to the integration of these three evaluation instruments in IQMS. The
implementation of IQMS was discussed as systems theory that works within a
particular environment. The role of performance management in public organizations
was presented using the New Public Management paradigm and linking it with
IQMS. Public management reform was also examined.
33
CHAPTER THREE
RESEARCH METHODOLOGY AND DATA COLLECTION METHODS
3.1 INTRODUCTION
This chapter outlines the research methodology and design of the study, the sample
and sampling procedures and the instrument used to collect data. It explains and
describes the methods used to collect data on the implementation of IQMS in
schools in the Cofimvaba District. Methodology refers to the coherent use of different
methods that complement one another to produce data and findings.
The study focuses on the challenges confronting IQMS implementation at schools in
the Cofimvaba District by documenting the experiences and views of educators in
their practical implementation of the system. Recommendations will be made on the
use of IQMS for the evaluation of educator performance and development.
Questionnaires were used to collect data from educators.
3.2 PERMISSION TO CONDUCT RESEARCH
The researcher applied for written permission to conduct the study from the
individual selected schools in the Cofimvaba district and to Superintendent General
of the Department of Education in the Eastern Cape Province. Permission was
received from the district manager of Cofimvaba schools on 30 July 2012. The
Superintendent General granted permission on 31 August 2012 on condition that a
report on the findings of the research must be provided to the Department through
the Quality Survey and Planning Section. Cohen et al. (2003:54) argue that, in the
process of obtaining permission, a researcher should clarify the nature and scope of
the research before meeting with officials and significant figures. This was achieved
through the identification of the aims and objectives of the research; its practical
application; methods and procedures to be used; the nature and size of the sample;
the envisaged extent of disruption of teaching and learning; arrangements to
guarantee confidentiality with respect to data; the role of feedback; and how the
findings can best be disseminated. In the process of obtaining permission to conduct
34
research, there should be absolute clarity on what it entails. Study respondents were
assured of confidentiality and the value of the research was explained to them. It
was stressed that the research would be conducted accurately and with scientific
impartiality. The researcher approached the Department, district office and provincial
office for permission to distribute the questionnaires to schools. The ethical
considerations outlined above require a researcher to examine ethical problems in
advance and show how he/she intends to solve such problems. During data
collection, the researcher has to comply with specific ethical requirements. These
requirements were divided into two broad categories of responsibility, firstly towards
human and non-human participants, and secondly towards the discipline of science
that requires a researcher to report accurately and honestly. De Vos (2007:57) notes
the need for precise and complete information to enable participants to make a
reasoned decision about possible participation.
3.3 RESEARCH DESIGN
The research design is the overall plan to collect and analyse data, and the
methodological paradigm which provides the overall structure for the procedures that
the researcher follows, including specifications for enhancing the internal and
external validity of the study (Leedy, 2009:91). The research design focuses on the
logic and the kind of evidence required to adequately address the research
questions. Babbie et al. (2003:74) define a research design as a plan or blueprint of
how one intends conducting the research.
Research design also refers to the researcher’s overall plan for obtaining answers to
the research questions and for testing the research hypotheses. McNeil (1990:110)
notes, that, scientific research is a systematic, controlled, empirical and critical
investigation of natural phenomena, guided by theory and hypotheses about the
assumed relations among such phenomena. The research design spells out the
strategies and techniques that can be adopted to develop information that is
accurate, objective, and interpretable. Hofstee (2006:120) writes that the research
design provides a theoretical background to the methods to be used in the research.
It provides the methodological framework which specifies the type of data to be
collected and the sources of the data.
35
3.4 RESEARCH INSTRUMENTS
Data need to be collected, recorded and arranged systematically for interpretation.
Various methods are available to obtain data to answer the questions. A
questionnaire is a method of collecting primary data where lists of pre-structured and
pre-tested questions are given to respondents to elicit reliable responses. A
questionnaire will always be an intrusion into the life of the respondent, be it in terms
of the time required to complete the questionnaire, the level of threat or sensitivity of
the questions or the possible invasion of privacy. According to Babbie and Mouton
(2003:245), questionnaire respondents are not passive data providers for
researchers; they are subjects, not objects of research.
Self-administered questionnaires were handed to respondents. Closed-ended and
open-ended questions were included in order to allow the respondents some
freedom to express their views. According to Singleton et al. (1988:265), the
advantage of open-ended questions is the freedom the respondent has in answering,
resulting in a veritable goldmine of information, revealing respondents’ logic or
thought processes, the amount of information they possess, and the strength of their
opinions or feelings. According to Babbie and Mouton (2003:233), closed-ended
questions provide a greater uniformity of responses and are more easily processed.
The structure of the questionnaire is informed by the qualitative approach adopted
for the study.
Questionnaires were designed and administered for purposively identified different
categories of participants. Purposive sampling is a non-probability method that
involves a non-random sample, where the researcher uses a wide range of methods
with a specific purpose in mind. It uses all possible subjects or cases that fit
particular criteria. The sample is based on the judgement of the researcher and
does not follow the theory of probability in the choice of elements such as principals,
educators, members of SMTs, and coordinators from the population of the selected
schools (Kumar, 2005:177; Salkind, 1997:97; and Neuman, 2006:220).
36
3.5 RESEARCH METHODOLOGY
In every research project it is important to determine exactly what methods are to be
used to collect data and what factors will influence the collection. A method can be
described as a route that leads to a goal. It deals with a task comprising one step of
a procedure and specifies how this step is to be performed (Koontz and O’Donnell,
1968:87). A method is thus more limited in scope than a procedure.
This study focuses on educators, principals, and other participants in the
implementation of the IQMS policy at schools in the Cofimvaba Education District of
the Eastern Cape Province. The purpose of any research is not simply to gather
data, but to deduce information from the data collected. The researcher must clearly
describe and explain how the data will be changed into information. The data can be
analysed in an inductive (for quantitative) and deductive (for qualitative) manner.
Berg (2004:7) notes that qualitative techniques allow researchers to share the
understandings and perceptions of others and to explore how people structure and
give meaning to their daily lives. Creswell, Ebersohn, Eloff, Ferreira, Ivankova,
Jansen, Niewenhuis, Pietersen, Plano and van der Westhuizen (2007) define a
qualitative study as a process of inquiry that is conducted in a natural setting to
understand a social or human problem with the aim of building a holistic picture and
reporting the detailed views of informants. The qualitative method assisted the
researcher to understand the respondents’ (educators, principals, management
teams and coordinators) perceptions of IQMS and its implementation. According to
Babbie et al. (2003:270) the primary goal of studies using this approach is
describing, understanding and explaining the human factor.
3.6 DATA ANALYSIS AND DESIGN OF THE STUDY
Henning (2004:21) argues that, an interpretive design seeks to produce a deep,
descriptive understanding of social phenomena. This ties in with the focus of my
research, as its purpose is to gain a deep level of understanding of the challenges
confronting the implementation of IQMS from the experiences of educators in their
day-to-day working environment as well as from unique contexts and backgrounds.
Marshal and Rossman (1999:57) observe that qualitative research takes place in a
37
natural setting and focuses on individuals ‘lived experience’. It is arguable that one
cannot understand human actions without understanding the meanings that
participants attribute to these actions, their thoughts, feelings, beliefs, values and
assumptions. This study was framed within the phenomenological (qualitative or
interpretive) research design. Phenomenological researchers argue that the world is
socially constructed and that science is driven by human interests; as an Education
development officer, working in Cofimvaba District, the researcher is part of this of
this world. Empirical research involves the selection of respondents from a larger
population to answer questions verbally in an interview or by means of a
questionnaire (Bailey, 1982:110; Polit & Hungler, 1993:445). In this research, the
questionnaire was administered to 50 randomly selected school principals in the
Cofimvaba district and one educator per school to establish their experiences of
IQMS implementation.
A total of 115 education personnel, including principals, office managers and district
coordinators participated in the study. Denzin and Lincoln (1994:210) argue that the
design of the study begins with real individuals in mind and with an understanding of
their social setting over time. The researcher studied the social setting in order to
understand the meaning of a participant’s life in the participant’s own terms. Denzin
and Lincoln (1994:212) assert that, qualitative research design is holistic; examines
relationships within a system; refers to the personal, face-to-face and immediate; is
focused on understanding a given social setting; demands that the time devoted to
analysis is equal to the time spent in the field; requires that the researcher become
the research instrument; incorporates informed consent and is responsive to ethical
concerns; provides the space for the description of the role of the researcher as well
as a description of the researcher’s own biases and ideological preferences; and
requires on-going analysis of data. Mancosa (2001:10) argues that the
phenomenological paradigm is undermined by the subjectivity of the researcher and
poor reliability of the findings, in that two researchers might arrive at different
conclusions based on their observations of the same phenomena at the same time.
Gough and Mousely (2000:3) maintain that the researcher’s background, ideas,
experiences and intentions shape not only the findings, but the research experience
itself.
38
3.7 QUALITATIVE RESEARCH METHODOLOGY
Research methodology refers to the approach, techniques and procedures employed
to implement the research plan or design (Babbie and Mouton, 2003:104). Creswell
et al. (2007) define a qualitative study as an inquiry that is conducted in a natural
setting in order to understand a social or human problem by building a holistic picture
and reporting the detailed views of informants. The qualitative method assisted the
researcher to understand the respondents’ (educators, principals, management
teams and coordinators) challenges relating to IQMS and its implementation.
According to Babbie et al. (2003:270) the primary goal of studies using this approach
is to describe, understand and explain the human factor. The researcher solicited the
viewpoints of the participants, using structured and unstructured interviews with
teachers, principals and IQMS coordinators. In qualitative research, contextual
factors are investigated and explained through deep, rich data which gave meaning
to a natural setting. Qualitative researchers argue that the world is socially
constructed and that science is driven by human interests by being observant.
The interpretive paradigm makes use of qualitative research methods such as
interviews, observations, documentary reviews, questionnaires and ideographic
descriptions to capture the meaning people assign to phenomena. Henning
(2004:20) notes that, this paradigm maintains that knowledge is constructed not only
by observable phenomena, but also by descriptions of people’s intentions, beliefs,
values and self-understanding. Creswell (2003:200) asserts that in qualitative
research, “the role of the researcher as the primary data collection instrument
necessitates the identification of personal values, assumptions and biases at the
study”. A qualitative researcher studies phenomena in their natural setting in order to
make sense of, or interpret them in terms of the meaning people bring to them. Terre
Blanche and Durrheim (1999:124) argue that a qualitative researcher relies on first-
hand accounts, tries to describe what he/she sees in rich detail and presents the
findings in engaging and sometimes evocative language. Terre Blanche (1999:12)
also argues that the researcher assumes that people’s subjective experiences are
real and should be taken seriously, that one can understand others’ experiences by
39
interacting with them and listening to what is said, and that qualitative research
techniques are best suited to this task.
Mancosa (2001:10) asserts that the advantage of qualitative, interpretive research is
that the findings often have greater validity and are less artificial, as the process of
observing phenomena in natural, real life settings often allows a researcher to
develop a more accurate understanding of those phenomena. Qualitative research
allows for in-depth understanding and rich detail.
3.8 SELECTION OF RESPONDENT
The respondents represent more than 10% of school population of Cofimvaba District. Pilot
and Hungler (1993:184), argue that “the larger the sample, the more representative of the
population it is likely to be”. A distinction is made between a population and a sample. The
respondents were selected to schools next to the district office. The researcher sent
messages to principals requesting a meeting regarding the introduction of the study. Most of
the principals sent back messages agreeing to meet with the researcher. After they have
contacted, all fifty principals agreed to hold their staff meetings and different dates were set.
At the introduction meetings, principals were asked to permit one educator from their
respective school. That educator can be deputy principal, Head of Division (HOD), member
of school management team (SMT). Circuit Managers were coming from ten circuits as they
coordinate IQMS implementation in their circuits. Lastly five district officials were selected as
coordinators all schools in the Cofimvaba Education district. Nel (2001:345) maintains that
the sampling procedure must be designed so that a sample of the actual population is
collected accurately and consistently and reflects the concentration of the population at the
time and place of research. A distinction is made between a sample and population.
3.9 POPULATION
A specific relationship exists between the population and a sample. The population is
the entire set from which the individuals or units of the study are chosen. However,
the target population is thought to be too big to undertake a meaningful and objective
study for the purposes of a qualitative mini-dissertation. Neuman (2006:224) states
40
that a target population is “(t)he concretely specific large group of many cases from
which the researcher draws a sample and to which results from a sample are
generalized.” Smaller samples that are a cross-section of the entire population save
time and money.
The participants in the study consisted of 50 educators drawn from the selected
schools; 50 principals of these schools; 10 members of SMTs and five District IQMS
District Coordinators. The participants were purposively selected on the basis of their
involvement in the implementation of the policy and due to the qualitative approach
adopted for the study. The total number of respondents identified for the study is
thus115.
Fig. 3.1 Cofimvaba Education District Schools Base Map
3.10 SAMPLE: Intsika Yethu Municipal Boundaries: EC 135 MAP
41
Newman (2006:224) and Salkind (1997:96) define the population as a group of
participants from which the researcher draws a sample and to which results from the
sample are generalized. Brynard and Hanekom (1997:43) state that, the population
refers to objects, phenomena, cases, events and activities, which the researcher
would like to study to identify data. Polit and Hungler (1993:442) define a population
as the entire set of individuals (or objects) that have some common characteristics.
The population for this study is the entire set of schools in the Cofimvaba District
from which individuals or units of the study are chosen. Sampling is therefore a way
of studying a population and its activities, thoughts attitudes, beliefs etc., so as to
generalize for that population or group.
3.10 SAMPLE
De Vos et al. (2005:193) and Gravetter and Forzano (2003:465) define a sample as
a portion of a targeted population that is representative of that population. A sample
always implies the simultaneous existence of a larger population of which the sample
is a smaller section or set of individuals. The process of selecting the elements from
a larger population is called sampling. It is clear that data is generally collected from
a sample rather than from entire population. Sampling involves decisions about
which people, settings, events, behaviours and social processes to observe.
Seaberg (1993:244) identifies two broad sampling methods, namely, probability and
non-probability sampling. In probability sampling, each element in the population has
a known and equal chance of being selected. This type of sampling increases the
representativeness of a sample, which is a desired quality. This requires the
researcher to have a sampling frame (a list of all the members of the population) and
each member must be identifiable. According to Seaberg (1993:25-252) and
Mancosa (2001:8), non-probability sampling, on the other hand, is non-random,
subjective and purposive in that the researcher may select the sample using criteria
other than those associated with randomness or selection. Cofimvaba district office
is having hundred and seventy five (175) school names, principals and contact
numbers. Fifty schools were selected as the sample of the research study to
represent the whole population. The sample was inclusive of Deputy principals,
42
HODs, Educators. The sampled units represent people from various positions
(strata), they were able to offer different perspective on the field of study..
3.11 SAMPLING PROCEDURES
Polit and Hungler (1993:444) define a random sample as a selection of a sample
such that each member of the population has an equal probability of being selected.
When a researcher is unable to investigate the entire population due to various
practical reasons, for example, the large size of population, a representative sample
must be selected and defined. There are 175 public schools in the Cofimvaba
District, including primary, secondary and senior secondary schools. Fifty schools
were randomly selected from this total. Sekaram (2004:266) notes that, a sample is
a subset of the population. It consists of some, rather than all members. A sample
should include a sufficient number of elements from the population, so that a study of
the sample and the understanding of its properties enable the researcher to
generalize such properties. Bailey (1982:110) and Polit and Hungler (1993:445) point
out that “Empirical research involves the selection of respondents selected from a
larger population to answer questions whether verbally in an interview or in a
questionnaire”. The sample for this study was selected on the basis that those
selected have some knowledge of the implementation of IQMS.
3.12 THE SURVEY QUESTIONNAIRE
Terre Blanche and Durrheim (1999:293) define a questionnaire as a group of written
questions used to gather information from respondents. A questionnaire usually
consists of a number of measurement scales, open-ended items for qualitative
responses, and other questions that elicit demographic information from
respondents. Terre Blanche and Durrheim (1999:293) suggested that a
questionnaire should be drawn up by following these steps:
Clarify the reason for the study
Determine the information required from the respondents
List the research questions to answer
43
Identify any additional (demographic) information required to address the
research questions
Primary, open-ended questions were used in the survey (Appendix A2) in order to
allow the respondents to communicate their experiences or views in their own words,
without any restrictions, on the practical implementation of the IQMS process in their
respective schools. Responses to the question, “Do you have any comments on
IQMS implementation in your school?” varied from a few lines to about a page.
Terre Blanche and Durrheim (1999:295) argue that a closed questionnaire elicits a
standardized set of responses from all respondents, allowing for easier comparative
analysis. They propose two formats as follows:
Checklists format: A questionnaire consists of a list of all possible answers to a
question and the respondent is able to choose more than one alternative. This
format is useful when the researcher wants to survey responses to a full domain
of activities.
Dichotomous format: The questionnaire presents respondents with a choice of
only two alternatives. This format is used when there are clear yes-no answers to
a question and is appropriate to obtain factual information from the respondents
e.g., “Have you been evaluated in your school before?” Closed-ended questions
were largely used to elicit critical information on the implications of the process of
IQMS implementation in Cofimvaba schools.
De Vos (1998:152) defines a questionnaire as a “set of questions in a form to be
completed by the respondents in respect of a research project”.
3.12.1 Advantages of Questionnaires
A questionnaire is cheaper than other methods of gathering data such as face-to-
face interviews with individual educators;
44
Data can usually be interpreted more easily than with other data collecting
techniques;
Confidentiality is assured because the questionnaire can be completed
anonymously; respondents are able to complete the questionnaire in private
without disclosing their name;
Questionnaires allow easy access to respondents; they can be distributed
throughout the country if required;
Questionnaires can involve large groups; that is, they can be distributed to as
many respondents as possible.
3.12.2 Areas that require attention in using a questionnaire
It is difficult to ensure that the correct or required person has completed the
questionnaire;
The information is not obtained in great depth because the respondent should
stick to the structured format; thus specific individual educator information is lost;
Lack of flexibility; the respondent should answer the given question, which is
usually in a structured and printed format.
3.13 DATA COLLECTION PROCEDURE
A questionnaire is particularly useful when information needs to be obtained from
fairly large groups. In this research study, the researcher needed to obtain data from
50 school participants. A total of 115 questionnaires were distributed, 92 of them
returned to researcher, which constitute 80% positive response rate. The researcher
also had to explain the content and the purpose of the study to the respondents, so
that all were clear on what was expected. The researcher took three weeks to
administer the questionnaire, interacting with individual school participants.
Adequate time was allocated to enable each respondent to respond in detail. The
questionnaires were distributed and collected by hand.
45
3.14 DATA ANALYSIS
Data analysis is the process of selecting, sorting, focusing and discarding data.
These activities are performed to ensure the accuracy of the data and the conversion
from a data form to a reduced form, which is more appropriate for writing a research
report. Data analysis includes qualitative data analysis, quantitative data analysis
and statistical data analysis where appropriate. Qualitative analysis involves the
integration and synthesis of narrative, non-numeric data. Quantitative (numeric) data
are analyzed through statistical procedures. Vithal and Jansen (1997:27) write that
researchers can only make sense of the data they collect through organizing and
arranging the data into a manageable form. The data should be coded by
categorizing and breaking it into broad sections in order to make sense of the
accumulated information. For easy interpretation, data can be packaged into
manageable themes and variables. While the data collected for this study were
mainly qualitative, the statistics Department at the Nelson Mandela Metropolitan
University was approached to assist with the analysis of the quantitative data.
3.15 CONCLUSION
This chapter outlined the research method and design. Qualitative data was obtained
through structured and semi-structured questions in the questionnaire. The
advantages of using questionnaires made it easy for the respondents to provide
more information. This research is situated in the interpretative paradigm as it was
fundamentally concerned with individuals’ lived experiences. This chapter focused
on the approach adopted to conduct an empirical investigation of the challenges
confronting IQMS implementation. A sample of schools from the Cofimvaba District
school population was randomly selected for the study.
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CHAPTER FOUR
DATA ANALYSIS, INTERPRETATION AND PRESENTATION OF IQMS
IMPLEMENTATION
4.1 INTRODUCTION
The aim of this research study was to evaluate IQMS implementation and to
describe the trends and patterns in IQMS. Following a profile of the respondents,
descriptive trends in the form of frequencies and percentages are presented for
statements relating to aspects of IQMS effectiveness. This is followed by the
presentation of the results of the SWOT analysis, and the bearing that these have on
the effectiveness of IQMS. Finally, significant differences in the responses are
presented. Tables and graphs are used to show the results, followed by a narrative
description.
4.2 DATA ANALYSIS
Data analysis is a process for making sense of collected data; it concentrates on
meanings expressed through words and action. Hussey and Hussey in Mancosa
(2001:13) suggested that there are three related elements in the analysis of
qualitative data:
Reducing the data by condensing the material in a systematic way to make it
more manageable.
Structuring the data in terms of themes, patterns and interrelations.
Detextualizing the data by converting extended texts into more manageable
forms such as summaries, charts, diagrams and illustrations.
Mancosa (2001:14) also argues that, in analysing data, the researcher uses the
inductive strategy whereby he/she collects and explores the data to determine which
themes or issues to follow up or concentrate on. Data collected from the interviews,
survey questionnaires, observational notes and documents were assembled. The
data were then summarized and categorized or grouped into themes. The
47
researcher looked for patterns in the data and attached meanings to these patterns
and interrelationships. In so doing, the researcher was able to compare the patterns
with other theories (Mancosa, 2001:16). The key themes or patterns emerging from
the data were presented in a linear-analytic format, which included the study
questions, an explanation of the methods used for the study, findings from the data
and an explanation and discussion of the implications. The data were integrated and
viewed holistically. The interpretation of the data involved comparison with and
contrast to previous studies and the literature, analysis of patterns and themes, and
clustering and triangulation of the various data sources.
A total of 115 questionnaires were distributed to 50 public schools in Cofimvaba
Education District. The questionnaire was divided into semi-structured and structured
sections to elicit responses to the research questions and achieve the study’s
objectives. There was a positive response, with 80% questionnaires received, that is
92 respondents.
4.3 KEY AREAS OF THE QUESTIONNAIRE
The questionnaire focused on the following areas: Section A gathered information on
the participants’ demographic details such as the position held, highest tertiary
qualification obtained, number of years in the schooling system, age and gender.
Section B was designed to assess adherence to the policy – whether or not
participants had been evaluated before, the committees in place, and the evaluation
timeframes.
Section C was designed to assess the effectiveness or impact of IQMS
implementation or non-implementation.
Section D dealt with remuneration and staff morale and the effects of non-
assessment on rewarding outstanding performance, employee monitoring and
development. The analysis and interpretation of the responses from the respondents
are provided at the end of this chapter.
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4.4 DEMOGRAPHIC DETAILS OF PARTICIPANTS
This information enabled the researcher to establish differences between the groups
(gender, qualification, age, position held, and experience) with respect to their
perceptions of IQMS implementation. The graphical comparisons allowed the
researcher to visualize the distribution of the groups with respect to the items or
statements where there are significant differences.
Fig. 4.1: Age Levels of respondents
The majority of the respondent, 38% were between age 30 and 45 years old. Thirty
four percent were aged 46-58 and 25% fell within the 24-29 years of age group.
Fig. 4.1 Age levels of respondents
Age levels of respondents No. Respondents Percentage
24 - 29 25 27.2%
30-45 35 38.0%
46 - 58 32 34.8%
Total 92 100%
27.2%f
30%
34.8%
Age Levels of respondents
24 ‐ 29 30 ‐ 45 46 ‐ 58
49
The following tables indicate the participants’ teaching experience, the number of
IQMS implementation processes conducted at their schools and the number of IQMS
processes they were directly involved in.
Table 4.1 Teaching experience of respondents
Experience (in years) No. Respondents Percentage
Under 15 29 31.5
16-20 16 17.4
20-27 30 32.6
28-33 17 18.5
Total 92
On table 4.1 above, it is shown that respondents with work experience years 15 are
the close to those respondents with experience of between 20 and 27. This group is
followed by respondents with work experience of 28 - 33 years and thereafter, with
the lowest percentage is respondents with work experience that is between 16 and
20 years.
Figure 4.2 below indicates years of experience in IQMS. The research findings
indicate that 59% of the participants had 0-15 years’ experience in participating in
27,2%; 27%
38,0%; 38%
34,8%; 35%
TEACHING EXPERIENCE OF RESPONDENTS
24 ‐ 29 30 ‐ 45
46 ‐ 58
50
development support groups and school development teams. Twenty percent had
16-20 years’ experience of such participation and 30%had 20-27 years’ experience.
These findings suggest that the majority of the schools in Cofimvaba started IQMS
six years ago; they could also suggest that the respondent joined the education
system less than six years ago.
Fig: 4.2 Years of experience in IQMS
Table 4.2 shows the gender of the respondents, while table 4.3 indicates the position they hold.
Table 4.2 Gender of respondents
Gender No. Participants Percentage
Males 37 40.2
Females 55 59.8
Total 92 100%
Male respondents constituted 40.2% of the study sample, which was a total of 37 male participants. Their female counterparts making up 59.8% totalling to 55 female participants and being the majority of the participants. Table 4.3 Position held by respondents
0,0%
5,0%
10,0%
15,0%
20,0%
25,0%
30,0%
35,0%
40,0%
24 ‐ 29 30 ‐ 45
27,2%
38,0%
Gender of respondents
51
Table4.3 below indicates that the highest percentage of principals responded to the
research questionnaire in their capacity as accounting managers and members of
school development teams. Educators are the second highest percentage,
comprising more than 50% of the respondents.
Table 4.3 Position held by respondents
Position No. respondents Percentage
Principals 20 21.7
D. Principals 5 5.4
HODs 10 10.9
Educators 57 62.0
Total 92 100%
4.5 ANALYSIS OF POLICY COMPLIANCE
Pre-knowledge of IQMS: Seventy nine percent (79%) of the respondents had prior
knowledge of IQMS while 21% have none. Those who had some knowledge
indicated the following as their source of information: Word of mouth from colleagues
in School Development Teams, the media, documents from the Department of
Education district office, books, university libraries, workshops and meetings at
cluster and school level, and trade union shop-steward councils.
0,0%
10,0%
20,0%
30,0%
40,0%
24 ‐ 29 30 ‐ 45 46 ‐ 58
27,2%
38,0% 34,8%
Position held by respondents
52
Table 4.4 Number of IQMS implementation processes completed at school since 2006 Performance Evaluation
process
Number Percentage
4 4 36.4%
3 2 18.1%
3 5 45.5%
Total 11 100
The above table indicates policy implementation processes from 2006 to the time of
the study. These findings suggest that the majority of schools started with IQMS less
than seven years ago or were not implementing the policy according to guidelines;
this could also suggest that the respondents joined the system after 2007. It is
important to note that the Eastern Cape Department of Education started
implementing IQMS, which by default refers to performance-related remuneration, in
2009, thereby suggesting that IQMS was not done properly in previous financial
years. Eighty percent of the respondents were in favour of being evaluated. They
welcome IQMS as a policy that will promote professional development and improve
teacher competence. However, 20% believe that IQMS undermines their
autonomous status as professionals and feel that they should be left to get on with
the job. The advocacy campaign used in the IQMS viewed through the lens of Public
Management Studies shows how discourses of the market sell, legitimize, enforce
policy and focus on output other than input. IQMS is promoted as a win-win policy
simultaneously serving teachers’ development needs and promoting accountability in
the teaching profession.
Table 4.5 Respondents that receive support from Development Support
Groups
Number of respondents Percentage
50 54.3%
17 18.5%
25 27.2%
Total no. 92 100
53
The above table shows that more than 50% of educators receive support from DSGs
and are happy to be evaluated. This indicates that teachers support the
developmental aspect of IQMS and presupposes that there is a need for
development. It also indicates whether respondents are familiar with the workings of
the IQMS and provides sound commentary on whether it is used as an accountability
tool instead of fulfilling its intention of promoting professionalism. Most of the
respondents said that they understand IQMS and have implemented it.
Approximately 15% felt that it is a complex policy and a time-consuming exercise.
Some respondents stated that the IQMS standards and sub-standards need to be
simplified to suit the needs/environment of implementers. School Management
Teams expressed the view that many educators do not assist with extra-curricular
activities like sport, music and others but give themselves high scores in
performance standard number seven. This suggests that educators are dishonest
when it comes to self-evaluation. DSGs also expressed the view that dishonest
ratings promote inflated scores which do not provide a clear picture of good or poor
performance. Class Act (2007: 27) notes that, the scores are accepted at face value
without internal or external moderation.
4.6 Feelings of respondents
Table 4.5 Effectiveness of IQMS
RESPONDENTS NUMBER PERCENTAGE
Effectiveness of IQMS 55 60%
Partially effective 27 29%
Not effective 10 11%
TOTAL 92
The majority of the educators indicated that IQMS helps them think critically about
how they teach. The respondents that fall below 15% believe that IQMS is not
effective and does not assist them to thick critically. A further percentage of the
sampled educators indicated that IQMS was significantly effective in helping them to
think critically about how they teach. Sixty percent of the respondents favoured this
new appraisal system as they felt it is essential to ensure accountability,
54
development and growth. It also boosts confidence and team work among teachers.
It could be used to provide rewards or incentives which would recognize good
performance. IQMS is an opportunity for support and guidance after identifying
weaknesses and strengths and could thus lead to an improvement in education.
Only 24% of educators felt IQMS was not effective in helping them think critically
about how they teach. They did not know what to expect and were concerned that
they are not trained to appraise one another. Some claimed that IQMS is a fault
finding exercise, that the composition of the panels (DSGs) is problematic and that
the process is prone to bias and subjectivity. Other concerns raised include the issue
of confidentiality, time constraints, the rating scale being too narrow, loopholes in the
process, difficulty in meeting as teams (DSGs) and the need for extensive record
keeping.
4.7 THE IMPACT OF IQMS ON THE QUALITY OF TEACHING AND LEARNING
Table 4.6 below indicates the impact of IQMS on the quality of education. According
to some respondents, the impact was noticeable in terms of educators’ preparation
of lessons for classroom visits by appraisers, resources used and lesson delivery.
Others indicated that more time and monitoring of IQMS is required to assess
whether it improved or maintained the quality of education as opposed to other
mechanisms such as internal supervision and a culture of teaching and learning.
Some schools indicated that WSE had more of an impact than IQMS. The majority of
educators agreed that IQMS was effective in increasing their productivity and
improving learners’ pass rates.
Table 4.6 Impact of IQMS on educators
Yes No Not sure Total
Personal development 56 34 10 100
Professional development 57 37 6 100
Quality of educators in school 27 60 13 100
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The following comments were made:
Those who felt that there was no change stated that they had always worked
hard and their schools had always maintained a high standard of education.
Others felt that IQMS had some impact, as it created awareness of their
weaknesses and areas for development, developed teamwork, helped them to
become more organized, encouraged them to accept criticism as well as
compliments, boosted self-confidence and re-motivated educators.
IQMS assisted schools to create awareness of strengths and weaknesses,
removed grey areas, enabled educators to become familiar with current policies,
and helped educators to apply their skills and adjust their teaching methodology
as well as improve lesson planning and presentation and motivated educators.
The process is complex, too cumbersome and overbearing. It is not practical,
involves too much paperwork and is very confusing.
Educators expressed concern over the composition of the panel, which could
lead to an element of bias and rating errors.
The respondents also felt that a true reflection of an educator’s performance
cannot be derived from one or two classroom observations and that the process
should be on going.
Those who saw no change with the introduction of IQMS stated that they had always
worked hard and their schools had always maintained a high standard of education.
Others felt it had some impact, as it created awareness of the criteria required;
identified their weaknesses and areas for development; developed spirit; introduced
new methodologies and techniques; helped to build confidence; was a morale
booster, helped them develop holistically and that self-evaluation made them more
introspective. IQMS assisted schools to create a better learning environment; and
improve educators’ level of accountability and lesson preparation and delivery in the
classroom. Some respondents felt that it was too soon to assess the degree of
IQMS’ impact on schools.
4.8 VIEWS OF EDUCATORS ON IQMS IMPLEMENTATION
All the respondents categorized as educators agreed that educators need to be
appraised. Some of the reasons given were as follows:
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To give educators direction in terms of their performance and professional
development.
To determine what support and guidance is needed by educators in the
classroom.
For teachers to be held accountable for the work they do.
To keep educators updated on the latest methodologies and techniques and
various changes taking place in the field of education (National Senior Certificate
- NCS, Outcomes-based Education - OBE)
To provide proper feedback from the various role players.
Educators are not above learning and will themselves learn while teaching
others.
Table 4.9 IQMS IMPLEMENTATION IN SCHOOLS
Table 4.7 Implementation of IQMS
RESPONDENTS NUMBERS PERCENTAGES
Started implementation 74 82
No start 3 3,2
Baseline only 13 14.1
TOTAL 92
Eighty two percent of the schools in Cofimvaba district had implemented IQMS
processes. 14% had started with baseline assessment but not completed the
developmental cycle.
Sixty percent (60%) felt that IQMS was effective in making educators account for
their actions, whether this relates to good or bad performance, while 17% felt that
IQMS was partially effective and only 8% felt it was not effective at all in ensuring
that educators account for their actions.
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4.10 SHOULD IQMS BE LINKED TO A REWARDS SYSTEM?
Sixty percent of the respondents indicated that educators need to be rewarded for
good performance and that if IQMS is linked to a rewards system, educators would
take the process seriously. They agreed with the link between performance and
rewards on condition that a level of objectivity was brought to the process and that
the SMT, external appraisers/ moderators or auditors be brought in. The other 40%
of the respondents opposed making this link because they feel that the system is
open to bias, there would favouritism, the process is subjective, should be used for
development only and because there is no uniformity between schools.
4.11 SHOULD IQMS BE LINKED TO PROFESSIONAL DEVELOPMENT?
Table 4.8 Link IQMS with development
RESPONDENTS NUMBERS PERCENTAGE
Summative evaluation 83 90,2
Baseline evaluation 6 6,5
Not complete 3 3.3
Total 92
Approximately 90% of the educators had been evaluated for professional
development purposes. However, the first professional development evaluation is
the baseline and consequently the summative assessment for the year becomes the
professional development assessment for the following year. There is a danger that
this can place more importance on summative assessment procedures and result in
professional development activities being curtailed. The professional development of
teachers is a pivotal issue in South African education and should not be marginalized
in favour of summative evaluation procedures and accountability measures linked to
rewards in the name of performance.
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4.12 FRAMEWORK FOR IQMS SCHOOL PLANNING
For IQMS to be successfully implemented, structures such as School Development
Teams (SDTs) and DSGs should be in place (IQMS Manual, 2003). If carefully
monitored, these structures play a meaningful role in the implementation of IQMS.
On the other hand, IQMS shows signs of ineffectiveness because it fails to take
cognizance of contextual factors such as workload and curriculum changes that
impact educator performance. Therefore performance management should be
treated holistically.
A fundamental principle of IQMS is to enhance the quality of teaching and learning
through effective management; IQMS also sets down national performance
standards that must be met to ensure the effectiveness and efficiency of the
evaluation system. Therefore, improvement in schools will be enhanced and
encouraged by a quality assurance and support system as well as school
stakeholder participation (Coleman, 2003:51).
The first meeting of the School Development Team (SDT) in January focuses on an
analysis of educators’ performance, reviews of the DSG’s peer work of summative
evaluation, analysis of the personal growth plan (PGP) for each educator and the
School Improvement plan (SIP). The second IQMS meeting focuses on a progress
review, reports from the DSG regarding the development of educators, a discussion
on the challenges, agreement on a schedule for pre-evaluation, and dates for self-
evaluation, summative evaluation, quality assurance and submission of scores.
4.13 OTHER QUALITY ASSURANCE MECHANISMS IN SCHOOLS
IQMS integrates other quality assurance mechanisms such as Whole School
Evaluation, systemic evaluation, the Workplace Skills Plan, and internal and external
supervision to improve the quality of education, among others. However, none of the
participating schools indicated that these systems have been integrated. They are
implemented as separate entities in compartments, sometimes with different
timeframes. This could be problematic as there is one clientele; the repetition of
procedures, processes and documentation causes frustration. All the schools agreed
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that the quality assurance programmes should be integrated in order to reduce the
time spent on administration, improve cost effectiveness, reduce paperwork and
increase teacher-learner contact time. A few of the participating schools had
experimented with the integration of some quality assurance mechanisms, with the
approval of educators. An example is classroom observation by DSGs and
supervisors; this was done on an on-going basis as part of school internal
supervision. External quality assurance measures and monitoring include visits from
IQMS moderators, subject advisors, and the Education Development Officer which
are conducted on a regular basis as part of school support; their reports are used for
the IQMS, WSE, Skills Development and system evaluation.
4.14. STRENGTHS OF IQMS IMPLEMENTATION
The analysis of the qualitative findings on the impact of IQMS revealed that, IQMS is
developmental if it is properly managed. Training needs to be undertaken
collaboratively with beneficiaries and address specific gaps in knowledge. The
processes of IQMS itself, moving from baseline to summative assessment, was
acknowledged as having developmental potential. Respondents felt that the positive
aspects of IQMS lie in the identification of educator strengths and weaknesses;
some respondents affirmed that IQMS improved working relations among educators.
Some respondents indicated that an increase in remuneration created extrinsic
motivation as IQMS improved educator performance, teaching skills and the
organization of teaching resources. IQMS increases the accountability of educators,
school managers and Department of Education officials.
4.15 WEAKNESSES OF IQMS
The qualitative data revealed some weaknesses in IQMS processes, including that
the purpose of IQMS was not properly understood by educators. Some educators
expressed the view that IQMS requires the thorough training of SMTs, educators and
district officials on implementation processes, while others felt that the workshop on
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the introduction of IQMS organized by the district education office was not sufficient
to cover the whole module. Some respondents were concerned about monitoring
and lack of oversight responsibility by SMTs and district officials. One respondent
singled out the challenge of questionable scores which do not correspond with
educators’ developmental needs. High scores give the impression that there are no
developmental needs. The lack of resources in schools was highlighted as a
prominent feature that causes poor performance and was regarded as contextual
factor of the school environment. IQMS is regarded as time consuming and there is
too much paper work. Other respondents felt that IQMS’ focus is mainly on teachers
with less, if any, on learners.
4.16 OPPORTUNITIES OF IQMS
The best performing educator was awarded a salary increase of 1% above average;
this could make IQMS effective. The other opportunity identified is the development
of educators to enhance effective teaching. Teacher development leads to improved
teacher competency, which some educators suggested as a selling point for IQMS.
The respondents also noted that public confidence in the education system might
improve as educators become more accountable to the school community through
IQMS. The prospect of promotion as a result of having benefitted from IQMS
processes for number of years was also regarded as an opportunity.
4.17 THREATS OF IQMS
The negative attitudes displayed by some educators emerged from the analysis of
the qualitative responses. These threaten to undermine the effectiveness of IQMS.
Some respondents felt that IQMS is time consuming, while others stated that
educators fear that they will not receive incentives or an increment if they are not
evaluated. Others felt that IQMS may be abused by management to settle scores
with educators. The other related theme that emerged from the data was that IQMS
could be used as a witch hunt against educators.
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4.18 CONCLUSION
This chapter presented the analysis and interpretation of the qualitative data
collected through structured questionnaires. The responses were presented in the
form of bar and pie charts, and tables. The questionnaires were distributed to role
players in IQMS implementation at different levels and 90% of their responses were
similar.
The majority of the respondents were between 30 and 57 years old and their years
of experience in teaching ranged between 15 and 35 years. The findings suggest
that schools are complying with IQMS policy as the majority of the respondents from
the sampled schools responded positively regarding IQMS implementation
processes. The respondents indicated that the policy had assisted schools to
determine pay progression for educators who achieve a particular level of
performance and helped to align performance with pay. The respondents further
indicated that the policy had helped the Department to recognize and reward
outstanding performance. Areas for further training and development were identified
and programmes were developed to address these needs. Nonetheless, educators
still regard the system as flawed, especially in terms of its subjectivity, the
composition of the panels, the amount of time and paperwork the process entails;
the lack of time to implement the process and its impractical nature. Educators would
like to see the system modified.
The following chapter draws conclusions and provides recommendations.
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CHAPTER FIVE
5.1 INTRODUCTION
This chapter examines the common trends and themes emerging from the
responses of the participants from the sampled group. These trends are analysed
and discussed in relation to the literature on IQMS as well as its implementation and
management in schools. The challenges and difficulties experienced by schools,
albeit to varying degrees, are discussed in relation to educators’ perspectives on
IQMS implementation. The recommendations will assist policy makers to frame and
focus their interventions informed by the trends revealed by the research findings.
The implementation of these recommendations would ensure that IQMS is
implemented effectively in schools. Finally, this chapter offers recommendations for
IQMS administrators, principals and educators in schools and makes suggestions for
further research.
5.2 SUMMARY OF THE STUDY
This study found that, all the schools surveyed had commenced with the
implementation of IQMS; however, they experienced varying degrees of success and
were confronted by a number of challenges. IQMS aims to measure the performance
of educators and schools within a complex education system. Improved teaching and
learning was attributed to the implementation of IQMS.
Performance evaluation takes place in most organizations in order to improve
performance. The formal assessment of schools and educators is not a new
concept. IQMS was introduced by Government as a formal, systematic and
compulsory mechanism for educator appraisal in South Africa. This study focused on
the challenges of implementing IQMS and its effectiveness in improving teaching
and learning.
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The theoretical interpretation of IQMS was based on systems theory which, in line
with Norlin (2009:54), perceived schools as social systems, i.e., more than one
person working together in a coordinated manner to achieve common goals. In terms
of systems theory, public schools are an open system, although the degree of
interaction with their environment may vary. There are five basic elements of the
systems approach: inputs, transformation, process, outputs, feedback and
environment. The environment in which school operates provides human, financial,
physical and information resources. Human resources are school assets that include
the Principal and staff, the SMT, parents and learners, and general labourers.
Financial resources are the capital that the school receives from the Department to
finance both on-going and long term operations. Physical resources include
suppliers of goods to schools, materials, facilities and equipment that enable schools
to function properly. Information resources are knowledge, prescribed curricula, data
and other kinds of information utilized by the school.
The internal operations of schools are regarded as the process that sustains the
existence of that institution; this includes management of IQMS by competent
principals and staff through Developmental Support Groups (DSGs), and educators
who are competent to teach the prescribed syllabus. IQMS is a new policy that
should be implemented without fail, as it is part of the transformation of the education
system.
IQMS aims to produce teachers who are accountable, determine incentives for good
performers in the form of pay progression and identify developmental needs. In
applying the systems approach to school settings, outputs are the attainment of
school and departmental goals such as the effective implementation of IQMS. Tasks
performed by school principals within the DSGs obviously have the ability to affect
the school and sometimes the Department’s outputs. This implies that feedback is
very important for the further investigation of the challenges confronting IQMS. For
example, negative feedback can be used to correct deficiencies in IQMS
implementation, which will in turn have an effect on the school’s future outputs. The
New Public Management (NPM) approach focuses on measurable (checkable)
standards of performance for public organizations and emphases accountability.
New Public Management was introduced by the researcher to illustrate that IQMS
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focuses on the outcomes rather than the processes of teaching. This enables an
assessment of training needs, performance rewards in the form of pay progression,
and improved learner performance. There are contextual factors that inhibit improved
performance that are not considered in IQMS implementation. It could therefore be
argued that policy makers are only paying lip service to context. The use of NPM is
characterized by more direct and assertive management and the use of private
sector practices (Thrupp and Willmont, 2003:12). The application of NPM to the
public sector is a global phenomenon that is inextricability linked to quasi-market
mechanisms and an increased emphasis on performance management in order to
enhance national competitiveness.
5.3 FINDINGS OF THE STUDY
Chapter 1 describe processes followed in implementing public policy and provided
reasons for the formulation of such policies like IQMS. Anderson (2007:4) describes
public policy in terms of problem-solution and states that it is a relatively stable,
purposive course of action followed by an actor or set of actors to deal with a
problem or matter of concern. One of the features of public policy is that it is an
anticipated solution to a problem. Research could be conducted on the interpretation
and translation of IQMS policy into actual practices by educators in schools. A
problem statement was established and research questions were formulated.
The study utilises systems theory to analyse the challenges of IQMS implementation,
a model of political system associated with David Easton 1957:2005. Literature
review provided an in-depth understanding of Integrated Quality Management
System in Public Administration. This chapter on literature review was based on
three different frameworks, namely the theoretical framework which was based on
Systems theory and New Public Administration paradigm, a conceptual framework,
which dealt with Public Administration concepts, lastly was the Legislative framework
which dealt with the current legislative measures and public documents such as
white Papers. IQMS was frame for implementation within specified period of the
year, expectation, roles and Key responsible role players was outlined.
Chapter three outlines the research design and methodology, and explains and
justifies the strategies of inquiry used in the study. Data collection techniques and
65
procedures suited to the design and issues of measurement such as formulation,
compilation, development of instruments, reliability and validation of the instrument
are outlined. Sampling and selection of respondents for the in the study, and lastly
field programme was described. The sample used for purposes of this research was
justified as it was limited to Cofimvaba Education district. These aspects of
delimitation and ethical consideration were addressed in chapter 1 and 4 of the
study. The research could be further extended to other district or to the whole
Eastern Cape province by making use of triangulation methodology, the research
would possible reflect more on effectiveness of IQMS.
This chapter was dealing with data analysis, interpretation and presentation of data
on IQMS implementation. Graphs, charts and tables were used to display and
describe information from respondents. Different information presented showed the
trends in the form of frequencies and percentages. Data analysis was done using the
collected data from the questionnaires. Mancosa (2001:14 also argues that in
analysing data, the researcher uses the inductive strategy whereby he/she collects
and explores the data to determine which themes or issues to follow up or
concentrate on. The researcher looked for patterns in the data and attached
meanings.
The data presented shows that IQMS implementation is conducted largely by all
schools in Cofimvaba district. The sampled respondents showed that performance
evaluation is useful for accountability purposes. Performance reward was
encouraged as form of incentives, but must not be linked with learner performance.
Teacher development after baseline evaluation was seen as a tool to improve
teaching and learning. Respondents indicated that evaluation for teacher
development must be separated from evaluation for pay progression.
Cofimvaba educators participated in the sample was mostly females and having lot
of teaching experience. The respondents from the sample showed high rate of
manager’s participating as they having management and leadership responsibility,
level of Deputy Principals, Head of Division (HOD) and SMTs shows inclusiveness of
IQMS on the whole school functionality.
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5.4 RECOMMENDATIONS
Generally, educators agree that IQMS should be used as an accountability tool with
an emphasis on performance measures to determine developmental needs and
rewards. An effort should be made to separate performance measures for the
determination of pay progression and those used to identify developmental needs.
For rewards/incentives to be fairly administered, a system that objectively measures
performance is needed. IQMS should not be linked to performance-related pay, as
this increases competition between educators and they may be less willing to help
one another to improve. Appraisal and development instrument need to be user-
friendly and less cumbersome in administrative work. There is a lot of fabrication
taking place to achieve expected scores and to window-dress. Principals must take
their oversight responsibilities seriously when moderating scores awarded by DSGs.
The overall responsibility of principals is to ensure that School Development Teams
and a school improvement plan are established and implemented with clear
timeframes. The downgrading and upgrading of scores with clear motivation should
not be something that SMTs are ashamed of. All the study participants supported the
use of external evaluation, since external evaluators have the potential to provide
credible and honest ratings as they are not familiar with those being evaluated.
There were also indications of collusion between colleagues to maintain collegiality
among teachers. NEEDU (2009:27) recommended the appointment of independent
quality evaluators/appraisers with a high level of professionalism and autonomy to
strengthen internal evaluation and build schools’ capacity. Adequate time for
advocacy and training shall be needed before implementation. Evaluators require a
more in-depth understanding of the objectives of IQMS, the subject matter and the
context of learning. Educators appear to be aware that evaluation is used to audit
achievement and check improvements in performance of teachers and learners.
IQMS must de-link the learner performance/attainment from the teacher appraisal
processes. To eliminate elements of subjectivity, democratic structures must be built
in a moderation process. School Management Teams should take the lead in
monitoring, controlling and developing a clear IQMS implementation plan.
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5.5 CONCLUSION
This chapter presented summary of discussions from all chapters of the study and
conclusion was drawn from the presentations. The trust of the study was to evaluate
the implementation of IQMS policy in Cofimvaba schools. The challenges and
difficulties experienced by school, albeit to varying degree were discussed. The
framework of discussing literature was by based on three approaches, which
systems theory, New Public Management paradigm and legislative framework which
spells pieces of policies on IQMS. The chapter offered recommendation for further
investigation of the topic as policy implementation need continuous reviews to suit
the needs of the public. Further investigation must widen the demarcation of the
study to include other district or the whole Eastern Cape Province. Policy makers
would take decision informed by information explored through investigation of the
environment.
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ANNEXURES
ANNEXURE 1:
QUESTIONAIRE FOR EDUCATORS AND SUPERVISORS
INSTRUCTION: Place X in the space provided
SECTION A
1. What is your age level in years?
20- 29 30- 45 46- 58
2. Please indicate your Gender?
Female Male
3. What is your position at work?
Educator HOD Dep. Principal Principal Other
4. How many years at your rank range from?
1-5 6-10 11-15 16-20 21- above
SECTION B
1. Have you ever been evaluated?
Yes No
2. If yes. By whom?
Your peer Your supervisor External Supervisor
3. How many times per year?
Daily Weekly Monthly Quarterly Once Twice Three Annually Nil
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4. Were you ever introduced to IQMS?
Yes No
5. If yes, From whom?
Peer Supervisor Principal District official others
6. Have ever been trained on IQMS?
Yes No
7. If yes by whom?
Department Peer Supervisor Union
SECTION C
1. Are you clear about requirement of IQMS?
Yes No
2. If no, what area?
Baseline evaluation Summative evaluation Composition of structures
3. Is IQMS implemented in your school?
Yes No
4. If yes, by whom?
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District official Principal Peer Yourself
SECTION D
1. Do you agree with performance related pay?
Yes No Uncertain
2. Do you agree that IQMS is a reliable instrument to assess your performance for
payment of your salary progression?
Yes No Uncertain
3. If no why?
..........................................................................................................................................
..........................................................................................................................................
..........................................................................................................................................
..........................................................................................................................................
4. Would you like blanket salary increase?
Yes No Uncertain
5. How would you like your salary progression paid?
Through IQMS process Automatically Other mean
6. How would you like to be developed?
Peer Supervisor District Union NGO
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Comments/suggestions you can make about the study?
…………………………………………………………………………………………………
…………………………………………………………………………………………………
………………………………………………………………………………………………….
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