How the Teaching Development Grant was used (and the problem of common-sense understandings of teaching and learning)

A professional qualification is required to teach at the primary and secondary level, but at the higher education level, all that is needed is content expertise. This may well contribute to South Africa’s low throughput and retention rates, in response to which, since 2004, the State has provided an amount of ZAR5.5 billion in the form of a Teaching Development Grant to address the slow completion rates. We present an analysis of the grant across the sector using a Social Realist framework. We suggest that many initiatives replicated issues identified in the literature as being of concern in that they rely on common-sense assumptions rather than theorised accounts. We also found that expertise in academic development was unevenly distributed. Given that the grant has continued, in the form of the University Capacity Development Grant, it is worth looking at how the grant has been used to ensure that future initiatives are effective

An analysis of the implementation of the Teaching Development Grant in the South African Higher Education Sector

The South African government has attempted to address various transformation and efficiency challenges in the system through the steering mechanisms at its disposal. This study analyses the implementation of one of these mechanisms, the Teaching Development Grant (TDG), which is designed to enhance student learning through the improvement of teaching and teaching resources at South African universities. Since the inception as an earmarked grant ten years ago, a total of R5.5 billion has been allocated for the TDG. The study thus sought to answer the question: What are the factors enabling and constraining the use of the TDG to enhance teaching and student success at South African universities? A total of 275 TDG progress reports and budget plans were analysed alongside other TDG documentation such as TDG payment letters to universities and institutional submissions that universities made on the use of the TDG for the 2008 TDG Review. The TDG criteria and policy over the years were also included as data. The analysis used Archer’s (1995; 1996) morphogenesis/stasis framework, which is concerned with how change does or does not happen over time. Archer’s analytical dualism was used to identify the interplay of structural, cultural and agential mechanisms shaping the emergence of and practices associated with TDGs in order to make sense of the events and experiences in the data. One of the main findings of the study was that the historically-based differentiated nature of the South African higher education landscape constrained the implementation of the TDG. The stark resource differences in the sector has meant that the TDG has not fully translated into system-wide gains. In the initial years of TDG implementation from 2004 to 2013, most institutions did not use the TDG for teaching development initiatives per se, but rather spent the bulk of the funds on infrastructure and equipment. Such resource gaps have persisted and continue to compromise the academic enterprise at affected universities. The data also showed that universities which have access to additional funding other than state funding have been able to augment and advance their own funds and were thus able to at least partially counter late payments of the TDG, fluctuations in allocations, and the short-term nature of TDG budgets and inadequate allocations. This enabled relatively straightforward implementation of the teaching and learning enhancement programmes at these universities, while there were ongoing implementation difficulties at the universities with the lowest success rates, the very institutions the grant was most targeted to address. The study showed that the shortage of appropriate teaching and learning staff constrained the nature and type of interventions. Historically Disadvantaged Institutions in particular struggled to attract and retain the much-needed expertise. This emerged from multiple structural constraints such as geographical location, conditions of work, inefficient human resources systems, lack of access to financial resources for competitive packages, and instability in governance and management structures at some universities. Emerging from the data in the study is the fact that staffing challenges remain one of the core constraints in the implementation of the TDG. In particular, the data indicated that teaching and learning staff hired on the basis of TDG funds were generally hired as part-time or contract staff. This meant that their academic qualifications and experience in teaching development were limited and, in many cases, it meant that the posts were not filled at all. In some cases, the fluctuating budgets meant that some projects had to be downscaled or abandoned altogether. The study found that many of the interventions that were implemented had tenuous links to teaching and learning and, even where there were such links, these interventions were often based on fairly a-theoretical, common-sense understandings of what would develop teaching. In many universities, there was little evidence of institution-level planning of interventions aimed at fundamentally addressing the need for teaching development. The limited access to teaching and learning expertise across the sector was mirrored in the uneven distribution of expertise in administration, financial management, institutional planning and human resource divisions, which had implications for the establishment of monitoring systems and implementation processes of the TDG. The lack of strong systems and policies encouraged cultures that did not value transparency, accountability or compliance to the TDG policy. The role of corporate agency in the form of leadership and ownership of projects emerged as a key enabler in the implementation of the TDG. All of these structures shaped the ability of institutions to spend the TDG and in some cases millions of Rands in funds were not spent and so were withheld. The study found that the inability of some universities to spend was exacerbated by the problem of a lack of alignment between the DHET financial year and the academic year. Although the TDG has made a notable contribution to the advancement of teaching and learning (T&L) nationally, this study revealed that the blunt implementation of the TDG across the sector constrained the gains. In particular, the practice of withholding unspent funds focused only on the symptoms of underspending and not on the structural, cultural and agential mechanisms that led to such under-expenditure. The withheld funds were redirected by the government for national projects but as all universities including the well-resourced Historically Advantaged Institutions (HAIs) had access to these withheld funds this translated into a regressive distribution of the TDG. Limited capacity within DHET to direct, manage and monitor the grants has also had a constraining effect on their use and the secondment of a teaching and learning expert to the department was seen to be a significant but short-term enablement in this regard. The findings of how the TDG implementation has emerged in the South African higher education sector are particularly important at this point in time as the TDG together with the Research Development Grant will be reconfigured into a new grant called the University Capacity Development Grant as from 2018. This study provides significant insights into the structural, cultural, and agential enablements and constraints of this new grant being able to drive changes in the sector. The findings also provide insights into the implementation of other earmarked grants.Boma la South Africa layesera kuthetsa mavuto omwe amadza posintha ndi kulongosola zinthu kudzera mu njira zosiyanasiyana. Kafukufukuyu akuunikira imodzi mwa njirazi yotchedwa Teaching Development Grant (TDG) yomwe inakonzedwa polimbikitsa maphunziro kudzera mukagwiritsidwe ntchito ka zipangizo zophunzitsira ndi zophunzirira za makono m’sukulu za ukachenjede ku South Africa. Ndalama zapafupifupi R5.5 billion ndi zomwe zaperekedwa kuti zigwiritsidwe nchito mu ndondomekoyi kuchokera pa nthawi yomwe inakhazikitsidwa; zaka khumi zapitazo. Kafukufukuyu anayesera kuyankha funso loti: Ndi zinthu ziti zomwe zimalimbikitsa kapena kubwezeretsa m’mbuyo kagwiritsidwe ntchito ka (TDG) polimbikitsa kuchita bwino kwa aphunzitsi ndi ophunzira m’sukulu za ukachenjede? Zikalata zosonyeza makhonzedwe a ophunzira, ndondomeko za kayendetseredwe ka chuma, zikalata za malipiridwe ndi zikalata zopezeka m’sukulu zaukachenjedezi zokhudzana ndi njira ya TDG zomwe zakhala zikugwiritsidwa ntchito zaka khumi zapitazi zinatengedwanso ngati uthenga wofunika koposa. Kauniuniyu anatsalira njira yotchedwa ‘Archer’s (1995/1996) Morphogenesis/Status Framework’ yomwe imafotokozera momwe kusintha kumachitikira pena kulepherekera. Njira younikira ya Archer: yothandizira pofufuza momwe kayendetsedwe ka bungwe, chikhalidwe komanso anthu oyendetsa bungwe amathandizira poonetsera momwe TDG imakhalira inagwiritsidwa ntchito poyesera kumvetsa zochitika komanso zopezeka mu kafukufukuyu. Chimodzi mwa zotsatira za kafukufukuyu n’chakuti kagwiritsidwe ntchito ka TDG kamabwezeredwa m’mbuyo ndi momwe sukulu za ukachenjede ku South Africa zidapangidwira. Kusiyana kwa usiwa wa zipangizo m’sukuluzi kudapangitsa kuti njira ya TDG isaonetse zipatso kwenikweni. Mu zaka zoyambirira itangokhazikidwitsa (2007 - 2013), sukulu zambiri sizidagwiritse ntchito TDG polimbikitsa kaphunzitsidwe. M’malo mwake ndalama zankhaninkhani zidagwiritsidwa ntchito pa zomangamanga ndi kugulira zipangizo. Usiwa wa zipangizowu ulipobe ndipo ukusokoneza mbali ya maphunziro m’sukulu zokhudzidwazi. Kafukufukuyu anasonyezanso kuti sukulu zomwe zimalandira thandizo lowonjezera pa lomwe zimalandira ku boma zakhala zikuyesetsa kuthana ndi vuto lopereka mochedwa ndalama za mundondomeko ya TDG ndi dongosolo la m’mene ndalamazi zigwirire ntchito. Izi zinawachititsa kuti asapeze mavuto ambiri polimbikitsa ndondomeko za kaphunzitsidwe ndi kaphunziridwe pomwe ena amavutika nazo. Enawa n’kukhala sukulu zomwe sizimachita bwino, zomwenso thandizoli lidalunjika pa izo kuti zithandizike. Kafukufukuyu anasonyeza kuti kuchepa kwa aphunzitsi kudapsinja zochitika zokhudza njirayi. Sukulu zosachita bwino kuchokera kalezi zidavutika kupeza ndi kusunga ogwira ntchito ake. Izi zimakhala choncho kaamba ka zifukwa zosiyanasiyana monga komwe sukuluyo ili, malamulo a ntchito, kupanda ukadaulo kwa oyang’anira antchitowa, kutalikirana ndi njira zina zopezera ndalama komanso kusakhazikika kwa anthu m’maudindo. Zina zotulukanso mu mfundo zotoledwazi zinaulula kuti vuto lina lalikulu linali ogwira ntchito. Polimbikitsa njira ya TDG, zimatanthauza kuti aphunzitsi omwe azilembedwa azikhala osakhazikika pa sukuluzi kapena a kontarakiti. Izi zimatanthauza kuti maphunziro ndi luntha lawo zimayenera kukhala zochepera. Mwanjira ina, tikhonza kunena kuti ogwira ntchitoyi panalibe. Nthawi zina, kusinthasintha kwa ndondomeko zachuma madongosolo ena kusiyidwa kapena kuchitika mosalongosoka. Kafukufukuyu anasonyezanso kuti zambiri mwa mfundo zomwe zinayikidwa kuti zigwiritsidwe ntchito zinali zosathandiza kwenikweni polimbikitsa maphunzirowa. Ndipo komwe mfundozi zinakhazikitsidwa, zinali chabe kufotokozera zinthu zodziwika kale ndi kale zokhudza zomwe zingalimbikitse uphunzitsi. M’sukulu zambiri za ukachenjede, pali umboni wochepa wa mfundo zomwe zinaikidwiratu ndi cholinga chopititsa patsogolo uphunzitsiwu. Kusowa kwa ukadaulo pa maphunzirowa kunaonekanso makamaka m’madera monga a oyendetsa sukuluzi, oyang’ana za chuma, olongosola malo onse komanso oyang’anira antchito. Panalibe kugawana anthuwa mofanana. Izi zidakhudza kwambiri kalondolondo ndinso kayendetsedwe ka TDG. Kusowa kwa ndondomeko zabwino ndi malamulo okhazikika kunalimbikitsa chikhalidwe cha chinyengo ndi kusatsatira mfundo za mundondomekoyi popereka utsogoleri ndi umwini ndiye unali wofunika polimbikitsa ndondomekoyi. Madongosolo otere anathandiza kuti sukulu zigwiritse ntchito njira ya TDG ndipo pena ndalama mamiliyoni zibwezedwe. Kafukufukuyu anaonetsa kuti kulephera kwa sukulu zina kugwiritsa ntchito ndalama kunachitika kaamba kosazindikira malire a chaka cha DHET ndi chaka cha maphunziro. Ngakhale njira ya TDG yathandizako kagwiritsidwe ntchito ka zipangizo zophunzitsira ndi zophunzirira, kafukufukuyu wasonyeza kuti mavuto omwe anaoneka mu ndondomeko ya TDG aphimba ubwino wake. Monga, m’chitidwe wobweza ndalama zosagwira ntchito unalunjika pa kulephera kugwiritsa ntchito ndalama zonse osati pa ubale pakati pa kayendetsedwe ka bungwe, chikhalidwe ndinso anthu oyendetsa bungwe. Ndalama zotsarazi zinalowetsedwa ku zitukuko zina ndi boma. Koma poti sukulu zonse za ukachenjede kuphatikizapo HAI zinapeza mwayi wa ndalamazi, izi zimabweretsa kulowa pansi kwa dongosolo la TDG. Kulephera mu DHET kutsogolera, kuyendetsa ndi kulondoloza thandizo kwadzetsanso mavuto pa kagwiritsidwe ntchito kake ngakhalenso kutumizidwa kwa katswiri pa kaphunzitsidwe kunaoneka ngati kofunika kosathandiza kwenikweni chifukwa kudali kwa nthawi yochepa. Zotsatira za kafukufukuyu (zokhudza maphunziro a ukachenjede ku South Africa) ndi zofunika kwambiri makamaka nthawi ino pomwe TDG pamodzi ndi RDG (Research Development Grant) zikhale kuunikiridwanso ndi kupanga thandizo latsopano lotchedwa University Capacity Development Grant kuyambira m’chaka cha 2018. Kafukufukuyu waunika mozama kayendetsedwe, chikhalidwe komanso oyendetsa zithandizo komanso mavuto kuti thandizo latsopanoli likathe kubweretsa kusintha. Zotsatirazi zaunikiranso kayendetsedwe ka zithandizo zina zomwe zikufuna kuchitika

How the Teaching Development Grant was used (and the problem of common-sense understandings of teaching and learning)

Teachers at primary and secondary education levels are required to hold a professional qualification but, at the higher education level, all that is required is content expertise. This may well contribute to South Africa's low university throughput and retention rates, in response to which, since 2004, the state has provided ZAR5.5 billion in the form of the Teaching Development Grant (now the University Capacity Development Grant) to address poor completion rates. We present an analysis of the use of the grant across the sector using a social realist framework. Every academic and student has themselves been taught and so have developed untheorised assumptions about curriculum and pedagogy. Such common-sense assumptions about teaching and learning often serve to reinforce the status quo, which is particularly problematic in a sector with poor and racially differentiated throughput and success rates. Many initiatives funded through the grant evidenced a reliance on common-sense assumptions rather than on theorised accounts. In particular, student development often took the form of remedial, add-on initiatives that left the mainstream curriculum untouched-and staff development was often generic and short term. We also found that expertise in academic development, which could potentially challenge common-sense assumptions, was unevenly distributed

Constraints on improving higher education teaching and learning through funding

In the midst of massification, targeted funding has been used in various countries to address inefficiencies in teaching and learning. In South Africa, arguments have been made for significant investments to be made and the University Capacity Development Grant (UCDG) in particular is being used as a driver for improved outputs. Prior to its implementation in 2018, the UCDG comprised the Research Development Grant and the Teaching Development Grant. The Teaching Development Grant was intended to address low retention and throughput rates and ZAR5.5 billion was spent to this end over a 12-year period. The analysis presented here of all Teaching Development Grant budget plans and progress reports from 2007 to 2015 shows that the undifferentiated implementation of the Teaching Development Grant within a differentiated sector limited its potential for system-wide gains. Institutions without adequate resources tended to divert Teaching Development Grant funds to attend to backlogs rather than to address teaching and learning practices and such universities lost much of their allocation through the withholding of unspent funds. This blanket practice addressed the symptoms of underspending but not the structural, cultural and agential mechanisms that led to such under-expenditure. Uneven access to the limited teaching development expertise also impacted on the use of the grant. This call for a context-based approach to funding has been identified as a key success factor in grant interventions in both African and European universities. We recommend a sector-wide response in the form of a national body or plan for the benefit of all universities and investment in financial management enhancement. Significance: The study contributes to a better understanding of how government funding interventions can achieve intended goals. The study calls for a more contextualised approach to funding and to greater  collaboration across the sector to maximise limited capacity