Caribbean Educational Research Journal The University of the West Indies Vol. 4, No. 1, April 2016, 97-114 Cave Hill Campus

Universalising Secondary Education in the Caribbean: Contrasting Perspectives

Verna Knight

University of the West Indies, Cave Hill Campus, Barbados

Having adopted a regional conceptualisation of basic education as being necessarily inclusive of secondary level schooling, emerging research on Caribbean countries’ experiences with Universal Secondary Education (USE) highlight a plethora of concerns which have implications for educational quality at the secondary level (Knight, 2014; Knight & Obidah, 2014; Marks, 2009; Thompson, 2009). Such concerns mandate a re-examination of national justifications and extent of support for USE. As such, this paper discusses the national justifications for USE, and uses data collected from students, teachers, principals and ministry officials as a basis for an evaluation of stakeholder reactions and support USE in the tri-island state of Grenada. The findings show that students strongly support being granted the opportunity for a secondary education, and share a belief in a direct relationship between completion of secondary schooling and improved life prospects. Principals and teachers however, have concerns that USE may have limited secondary schools’ capacity to provide a quality education for every child. Given new global support for USE as a post-2015 education goal (UNESCO/UNICEF, 2013; UIS/UNICEF, 2015) this paper adds to a growing body of work relevant to informing effective education planning and policy development at the regional and international levels.

Keywords: Caribbean Education, Universal Secondary Education, Secondary Education

Introduction “Education represents the hopes, dreams and aspirations of children, families, communities and nations around the world – the most reliable route out of poverty and a critical pathway towards healthier, more productive citizens and stronger societies.” (UNESCO/UNICEF, 2015, p. 03) Increasing demand for secondary education during the post-emancipation and post- independence era in the Caribbean evidences the high value attached to secondary education by Caribbean nationals. Secondary education was accepted as being the most productive route to social mobility as it facilitates access to both university-level study as well as careers in various professional fields (DeLisle, 2012). The limited number of school places and the high demand in these early years necessitated a selection mechanism, and so two decades after its introduction in England in 1944, the Eleven Plus examination was introduced into the

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Caribbean as a means for selecting the highest performing students for free secondary level study. This approach was challenged at the beginning of the 21st century by both the Education For All Initiative (EFA) and the Millennium Development Goals (MDG) initiative which compelled world countries into action towards the provision of what became known as Universal Basic Education by 2015. Being signatory to the goals of these initiatives, and having adopted a definition of compulsory education as being from ages five to sixteen, most Caribbean countries re-doubled their efforts towards pursuing not only universalised access to primary education, but also increased access to secondary education. This emphasis on increasing access was evident in overt changes in education policies and plans across the region. Some countries took a comprehensive education-reform approach (such as Bahamas, Barbados, the countries of the Organisation of Eastern Caribbean States (OECS), and Trinidad and Tobago), and others took a project-driven approach (such as Belize, Guyana, Jamaica, and the Turks and Caicos Islands) (Miller, 2000). Key to note at this stage is that prior to 2015, the international EFA and MDG initiatives had been careful to emphasise the goal of universal education access as being necessarily inclusive of access to primary education, and as far as possible access to the lower levels of secondary schooling. Therefore, while for other developing countries in areas such as Pakistan, South and West Asia, and Sub-Saharan Africa, the EFA/MDG struggle was mostly limited to a focus on achieving universal primary education, in most Caribbean countries the focus had moved on to universal secondary education (Cohen, 2006; Cohen & Bloom, 2005; Latif, 2009; Omotayo, Ihebereme & Maduewesi, 2008; Sperling, 2005; Uko-Aviomoh, Okoh & Omatseye, 2007). Although there had been improvements in access to secondary education in the Caribbean during the 1980’s, at the end of that decade, student access to education at that level remained highly restricted and limited to the number of school places available, and students’ academic ability. A sub-regional assessment of the status of education in the OECS in 1989 revealed that the provision of educational access at the primary level was generally satisfactory (with the exception of students with disabilities who still faced challenges to access). The vast majority of students who entered primary schools were generally being promoted annually, remaining in school, and completing the primary cycle in the prescribed time, and so the system was deemed efficient. With efficient completion rates at the primary level, the limitations in access to the secondary level then became a major concern. A decision was therefore taken to expand, re-conceptualize and improve secondary education across the sub-region (Miller, 1991).

The Plan for Restructuring Secondary Education in the OECS OECS member-states agreed that secondary education would be restructured to include the following key features as presented in Table 1.

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Table 1

Summary of the Key Features of Planned OECS Restructure for Secondary Education 1991-2000 All OECS member states agreed to work towards the following reforms in education at the secondary level:  Provision of secondary schooling to all children up to the age of 16 years;  The transfer of all children who were not developmentally disabled;  Provision of special schooling for the developmentally disabled up to age 16;  Ensuring that the transfer from primary to secondary schooling be based on satisfying functional standards of literacy and numeracy at the primary level, and that this would lead to the phasing out of the Common Entrance Examinations overtime;  That the age of transfer would be allowed to vary between 10-13;  That secondary education would provide a general education through a common curriculum at the lower secondary level, followed by two years of broad specialization at the upper secondary level.  Improving the quality of secondary education through comprehensive training for school principals and teachers , strengthening of foreign language teaching, and lengthening of school days to five and one half hours of instruction;  Articulate secondary schooling with upper primary grades; tertiary programs; continuing education; and regional, sub-regional, and national TVET programs;  Strengthen support services at the secondary level in areas such as guidance and counseling; social welfare; and libraries and learning resources. Adapted from “Foundations for the Future: The OECS Education Reform Strategy” (Miller et al., 1991).

The general consensus was that secondary education was to be provided for all students in both regular and special education institutions until the age of 16, but that the transition would be dependent on students’ achievement of the functional standards of literacy and numeracy at the primary level. In 1998, an assessment of the status of progress on the secondary education strategies reported moderate to low implementation. The same strategies were therefore retained in the revised regional education reform strategy (Miller et al., 2000) with a few adaptations as evident in Table 2.

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Table 2

Adaptations to the Planned Strategies for Restructuring Secondary Education in the OECS Sub- Region 2000-2010 The following are some additions and clarifications included in the revised plan for restructuring secondary education 2000-2010:  Provide secondary education for all children whose developmental status and level of educational attainment permit their acquisition of this level of education;  Students meeting the functional literacy and numeracy standards at the primary level should receive certification of their achievement in the form of a primary school certificate;  The age of transfer from the primary to the secondary education programme should be allowed to vary from 10 to 15 years.  All students transferred to secondary education should be guaranteed five years of secondary schooling from the time of their transfer.  At the upper secondary level, all students should be required to take English Language, Mathematics, a foreign language, a Science and a Technology subject as the core of their programme of study, to which would be added any other interested areas of study. Source: “Pillars for Partnership and Progress: The OECS Education Reform Strategy” (Miller et al., 2000)

Specific mention must be made of the variation period provided for students in transferring to the secondary level – the age of transfer was allowed to vary from 10-15 years, and all students who transferred to the secondary level were to be guaranteed five years of secondary schooling from the time of transfer. Upon completion of secondary school all students were expected to sit a minimum core of five subjects certified by the CXC (Caribbean Examination Council) level (English language, Mathematics, a foreign language, a science and a technology subject).

The Reality of the Implementation of USE in the OECS Sub-Region The reality of the implementation of USE in member states however tells a different story to that which was agreed in the conceptualised OECS Plan for restructuring secondary education. Reports and research on the reality of the implementation of the policy of universalised secondary education in St. Vincent and Grenada for example (Marks, 2009; Knight, 2014; Knight & Obidah, 2014) make several areas of concerns immediately apparent. The general areas of concern included: an elimination of functional literacy and numeracy standards as a basis for facilitating student transfer to the secondary level; limited variations in the age criterion for transfer; inadequate training of secondary teachers for addressing literacy and numeracy deficiencies; inadequate teacher training in differentiated instruction; increased disciplinary concerns; and the absence of differentiated pathways for upper secondary education.

CSEC level certifications of students upon completion of secondary schooling The CSEC certification results for students on completion of secondary education raised further concerns. CSEC reports on secondary students’ performance in English A and Mathematics over the period 2006 – 2014, for example, show a dismal picture as upon completion of the

The Caribbean Educational Research Journal 101 secondary level less than half of the student population were able to obtain CSEC certification in these foundational areas (CXC Subject Reports, 2006-2014). CXC’s CSEC regional performance reviews also showed that generally less than one quarter of the cohort of students sitting CSEC examinations obtain acceptable grades in five or more subjects. In 2009 for example, only 21 percent of the students sitting CSEC received five or more passes. Fifty-two percent of the candidates either did not pass any subject, or received acceptable grades in only one subject (Jules, 2010). Such outcomes present a threat to the ultimate goals of universalised access to education.

Research Questions The significance of the above concerns for educational quality at the secondary level (Knight, 2014; Knight & Obidah, 2014; Marks, 2009; Thompson, 2009) mandate a re-examination of national justifications and extent of support for USE. As such, this paper specifically addresses the following research questions:

1. What were the national justifications for pursuing USE in Grenada? 2. What was the reaction of principals toward USE? 3. What were the reactions of teachers and students toward USE?

The contrasting perspectives of these three groups of stakeholders are then used as a basis for a general evaluation of stakeholder reactions and support USE in the tri-island state of Grenada.

The Background to USE in Grenada An analysis of the tri-island state’s struggle towards universalised access to secondary education as presented in Knight (2014) was characterised by the full implementation of USE on the sister isles in 1997/1998, and a gradual phasing in of the policy on the mainland. Given the small population of 6,000 inhabitants on the sister isles (Government of Grenada, 2013) and the availability of school places, the directive was given that all students sitting the CEE would be offered a place at the secondary level despite their performance at the beginning of the 1997/1998 school year. The traditional procedure remained for students attending schools on the mainland of Grenada; places were offered for the highest performing eleven to twelve year old students. However, a second directive was given relating to students on the mainland – that space would be reserved for all students sitting the CEE who were aged thirteen-plus, and for whom it would have been their final attempt at the CEE. This was intended to ensure that these students transitioned to the secondary level and were not left behind at the primary level (therefore being at risk to eventually dropping out). To accommodate the increased student enrollment, classroom space was expanded in secondary schools throughout the tri-island state. Only one new school was built. Given that current and projected birth-rate patterns predicted reduced students enrollment figures within the coming years, the decision was made to pursue a phased approach (as space allowed). Full transition was achieved in 2012.

Literacy and Numeracy Levels in Grenada Table 3 provides insight into student performance in literacy and numeracy across Grenada for the years 2000-2013. This is a useful backdrop for understanding the perspectives shared by the 102 V. Knight various stakeholders as it relates to universalising secondary education in the way that it has been achieved in Grenada.

Table 3

National Mean Performance in Grade 4 Minimum Competency Test 2000 – 2013 (English and Mathematics) Years National Mean for English National Mean for Language Mathematics 2000 31.7 25.2 2001 34.2 36.1 2002 44.3 38.1 2003 52.6 39.4

2004 Not Available Not Available 2005 Not Available Not Available 2006 58.0 24.9 2007 47.5 41.2 2008 52.4 47.9 2009 55.2 43.7 2010 Not Available Not Available 2011 55.1 49.2 2012 58.8 56.2 2013 59.7 43.2 Source: Education Statistical Digest (Ministry of Education – Grenada, 2014) The data show that for over the last decade and a half, the mean student performance in the subject of English Language has ranged between 31 percent to 59 percent; for the area of Mathematics it is lower – 24 percent to 56 percent. This is indicative of student performance in Grade 4 at the primary level and shows significant gaps in the minimum competencies that students should have already attained at that level, and is indicative of the gaps they later have when transferred to the secondary level. This paper seeks to contribute to the growing debate on universalising access to quality education at the sub-regional, regional and international levels, through an interrogation of the multiple perspectives of ministry officials, principals, teachers and students towards universalised access at the secondary level. Given limited finances for education development in developing countries, global efforts aimed at improving education quality have resulted in many premature and ad-hoc adoption and implementation of policies and programmes promoted by international donor agencies. This has

The Caribbean Educational Research Journal 103 implications for the overall effectiveness of such policies and programmes, and the ultimate success of these in achieving positive student outcomes (Anderson & Mundy, 2014; Creemers & Reezigt, 2005). The conceptual framework for this paper is informed by the dual fields of school effectiveness and school improvement research which emphasise that there is a direct relationship between school processes and student outcomes, and that system-level changes which target schools should ensure that schools have first been strengthened for managing the change, and that ultimately all changes should enhance student outcomes. Such studies are supportive of a mandate for schools to produce students for future societal effectiveness, and therefore underscore the need for greater accountability to the public for education quality (Cheng & Mok, 2008; Schereens, 2013).

Methodology Design This study utilised a mixed-method design. Mixed-methods research is now viewed as the third methodological movement and an approach that has much value to education research. Its emergence has been in response to the limitations of the sole use of either quantitative or qualitative methods and it is considered by many to be a legitimate alternative to these two research traditions (Creswell, 2015; Johnson & Christensen, 2014). A QUAN-QUAL mixed method design was used; specifically what Leech and Onwuegbuzie (2009) refer to as a “partially mixed concurrent equal status design” (p. 268). The contrasting perspectives presented in this paper were obtained from data collected from a larger mixed–method study of USE in Grenada. Table 4 provides a summary of the composition of the purposive research sample from which the data was collected to inform the development of this paper.

Table 4

Demographic Composition of Research Participants Research Participant Numbers of Participants Data Collection Mechanism Groups Ministry Officials Three (3) Interviews

Principals Eight (8) Face-to-Face Interviews

Teachers Three hundred and Eleven Questionnaire Survey (311) Students Eight (8) Groups Focus group Sessions

Three ministry officials were interviewed (two former Chief Education Officers, and one former area education officer for the sister islands). Each principal from the eight selected schools was interviewed. Questionnaires were also distributed to all teachers in the eight selected schools, 104 V. Knight and one student focus group session was held per selected school. Each focus group was comprised of ten (10) students per school. The students were selected from all five class levels at the secondary schools. The students selected all volunteered to be part of the group session and represented a range of mixed ability levels. The schools targeted were the two secondary schools on the sister isles, and six of the lowest performing secondary schools on the mainland to which most lower performing students were being allocated since the policy of USE was implemented.

Data Analysis While descriptive statistical procedures were used to analyse the quantitative data from both teachers and student surveys, thematic analysis was used to analyze the qualitative data. The qualitative data analysis was also aided by a Daily Interpretive Analysis (DIA) (Claudet, 1999) which was conducted after each interview and focus group session, and aided in identifying emerging themes from the data. In the use of this QUAN-QUAL design, the data were not mixed across phases but rather each was analysed separately and mixed at the data interpretation stage (Leech & Onwuegbuzie, 2009).

Findings Examining the justifications for the implementation of the policy of universalized access to Secondary Education in Grenada Principals and teachers revealed a lack of knowledge as it relates to the national justifications for the government’s determination to pursue the policy of universalised access to secondary education. Two principals interviewed were aware of the exact year when the policy of USE began affecting their school; however the others reported that they became aware of the policy after noticing a gradual increase in student enrollment at their schools, especially the placement of an increased number of students lacking basic skills for successfully engaging at the secondary level. As principals and teachers began to raise questions regarding the weak basic skills of increasing numbers of students being transferred to the secondary level, ministry officials confirmed that a policy of USE was being pursued, and was thus affecting their schools. Schools were therefore not prepared for the move towards universalised access. Interestingly, when the question of consultations with key educational stakeholders was raised in interviews with ministry officials, they insisted that educational stakeholders were consulted regarding the implementation of USE, but not directly. The consultations were described as having taken place at the Teachers’ Union level given their involvement in consultations towards the development of the Strategic Plan for Educational Enhancement and Development (SPEED II) which included the goal of pursuing universalized secondary access. As was explained: “The Grenada Union of Teachers and the National Parent Teacher Association were part of the preparation of SPEED I and SPEED II, and increasing access to secondary education was highlighted then as one of governments’ plans for the coming years.” (Ministry Official #3) The consultations therefore were not necessarily held with schools directly, or even the Union directly. The result was a disconnect between the policy dictated from the central administrative level (Ministry of Education and Human Resource Development) and the reality being experienced at the school level. Ministry officials were therefore the only group who was able to present insight into the

The Caribbean Educational Research Journal 105 national justifications for the implementation of universalised access to secondary education in Grenada. All three ministry officials interviewed explained that the policy was basically linked to capacity. The following three key points were presented by all three Ministry officials as justifications for pursuing USE: 1. That one of the goals of education was always to provide a secondary education for every child; 2. That the inability to previously provide a place at the secondary level for each child had been traditionally limited by capacity not students’ ability; and 3. USE was a goal being pursued by other Caribbean countries at the regional level (OECS), and Grenada was lagging in implementation. Generally, access at the primary and secondary levels was considered to comprise a basic education, and the inability to provide a place for every child had simply been previously limited by capacity, that is the number of physical places available for enrolling students at the secondary level, rather than an issue of students’ ability or readiness for secondary education. As a result when the opportunity allowed for increased enrolments, it was taken. It was also explained that increased motivation came in the form of regional emphasis on achieving USE which had been achieved or was at the time being aggressively pursued by other neighbouring Caribbean countries and therefore USE was included in the national education policy as a goal of education. This allowed for increased emphasis to be placed on the achievement of USE as an educational attainment.

Mixed Reactions toward USE Principals, teachers and students provided insight into the question of support for the policy of USE.

Principals Dissatisfaction with policy of USE All eight (8) principals expressed dissatisfaction with the policy of USE. The overall feeling was that there was an increased number of students being transferred from the primary school level to the secondary level, who were unprepared for successfully engaging with learning at the secondary level, and additionally they were being transferred to the care of teachers who lacked the skills to help them succeed. Principals explained that while the idea of everyone being given a secondary education was good, the challenges it has brought to the secondary education system were affecting the quality of education being provided at that level. The principals asserted that increased numbers of students were being sent to their schools even though the schools were not prepared to receive them.

Challenges due to the policy of USE For all schools, the years since the government began its aggressive implementation of USE (1997-present) have been fraught with struggles to expand school facilities, and teaching capacity to match increased numbers. Even with the additional provision of literacy coordinators and school counselors to secondary schools, the challenges remain. The principals highlighted the following as critical challenges: students with significant weaknesses in the basic areas of language and numeracy; inability of teachers to provide differentiated instruction in all classrooms; the predominantly academic orientation of the secondary school curriculum; and a general fear that USE was compromising the quality of education being provided at the 106 V. Knight secondary level.

Teachers USE perceived to be impacting teaching Quality At the point of the study being conducted, most teachers (88%) in the selected schools were aware that the policy of USE was in effect. In fact, most teachers blamed USE for what they perceived as being falling standards in teaching and learning at the secondary level. Ninety eight percent (98%) of the teachers reported an increase in the number of students facing academic challenges in the classroom. Seventy-three percent (73%) of them believed that the policy of USE was responsible for falling standards in teaching and learning. This they believed was as a result of students lacking the basic skills for secondary level education (73%); overcrowded classrooms (42%), lack of appropriate resources to address students’ needs (56%); inadequate curriculum (55%); and teachers’ lack of appropriate training to meet the current student needs (40%). These results are depicted in Figure 1.

Percentage (%) 80 70 60 50 40 30 20 10 0 Poor Literacy Insufficent Inadequate Overcrowded Inadequate Skills Resources Curriculum Classrooms Teacher Training

Figure 1: Teacher-Identified USE-Motivated Factors Affecting Quality of Education

Teachers were of the view that universalised access had contributed to an increase in the following problems at the secondary level: students with poor literacy skills; insufficient teaching and learning resources to adequately teach all students; an inadequate curriculum which was no longer suitable for meeting all students’ needs; overcrowded classrooms which made teaching difficult, and inadequacies in teacher training as the traditional training which was suited for teaching at the secondary level was now revealed as being no longer adequate. Teachers therefore saw the policy of USE as having aggravated negative conditions at the secondary level which now threatened their delivery of quality teaching and learning.

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Teacher-recommended actions for addressing USE-related challenges From a list of research-supported educational interventions for improving educational quality, teachers indicated their greatest support for providing alternative secondary schools (76%), improved professional development training jointly collaborated among schools (75%), peer assessment for developmental purposes (61%), and the joint educational programmes among/between schools (60%). They exhibited mixed reactions regarding teacher exchange programmes (Figure 2).

80 70 60 50 40 30 20 10 0

Supportive (%) Non Supportive (%)

Figure 2: Level of Teachers’ Support for Five Optional Educational Interventions for Improving Secondary Schooling

Students Students’ perception regarding current Education Quality Seventy-five percent (75%) of the students generally genuinely believed that they were being afforded a good quality education at their schools even though there were areas in which they were aware that improvements were needed. A significant twenty-four percent (24%) however disagreed. This is evident in Figure 3.

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YES NO NR

1%

24%

75%

Figure 3: Students Perceptions Regarding the Quality of Their Secondary Education

Students’ feelings were in direct contrast to those of their teachers, while at the same time showing evidence of their awareness of the new context of education within which they were being taught. They were generally of the belief that a good education was necessary for success in adult life. They saw schools as being the providers of the enabling foundations for obtaining a good job, and subsequently a successful life, and were willing to pursue secondary schooling for this reason; this was true even for the students with weak reading and writing skills. “You need a good education to get a good job…[students] struggle through even if they are having problems, because they want to get a good education…to get a good job” (Group #1)

Students’ feelings regarding the policy of USE Most students had never heard the term ‘Universal Secondary Education’ nor were they aware that it was a policy informing their transfer to the secondary level. Most students on the sister isles of Grenada (attending the two secondary schools on the Carriacou) were however familiar with the term, having heard it being used but unsure as to what it really meant. These students from schools on Carriacou were however very aware that they no longer needed to ‘pass’ the CEE to be placed at a secondary school on the island of Carriacou, while the students from the secondary schools on mainland Grenada were still generally of the belief that they had all been awarded a place because they had ‘passed’ the CEE. In order to obtain students’ views on the policy of USE, the concept was subsequently explained to them during the focus group discussion, and general feelings were shared by students as they made the connections between the policy and their current secondary schooling experience. The students who were part of the focus groups on the sister isles were the most vocal about their feelings regarding USE. “Some [students] are not ready for secondary school but are given a free pass, and then they can’t do the work…lots of them get teased because they can’t speak well, read well or write well…these students misbehave and distract class” (Group #1).

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“It is not a completely good policy; not if some students lack the basic skills…those lacking skills are sent to secondary school and they give more trouble than anything else” (Group #2). Overall, all eight groups of students were generally supportive of the plan to afford every child a secondary education, but had some reservations about the impact this would have on schools. The general feeling was that the opportunity should only be given when a student has obtained the basic skills to enable them to complete the level of work necessary at the secondary level. “It is a good policy but only for those who are ready and able to do the work. Some students cannot do the work and need help to learn to read and write well first” (Group #8).

“It is a good policy. Everyone needs a good education, but [there needs to be] more help for the slower students” (Group # 4).

“Students should earn the right to a secondary education. It should not be a free pass. Those who are not ready should remain at the primary school level until they are ready…It makes no sense to give them a free pass if they cannot do the work…because those students are the main ones who come to school and give teachers a lot of trouble and cause distractions in the class” (Group # 7).

“Some students are not performing good because they don’t have the skills they need to understand and do well in the different subjects and so they get left behind” (Group #2).

“Students who can’t read and write don’t do well on exams” (Group #3).

The dominant feeling of most students was that while a secondary education was valuable and critical to every student’s future, students should only be transferred from the primary to the secondary level when they have obtained the necessary skills (basic reading, writing and numeracy skills) needed for successful engagement with the curriculum.

Students’ recommendations for addressing current problems in Secondary Education A recommendation from the students as it regards improving secondary education was that secondary schools needed to obtain more trained teachers to help those students who were struggling: “They [School authorities] need more trained teachers to help those who are weak and struggling…teachers who care. ...those [students] who are weak in their main subjects want to at least learn a skill before leaving secondary school, since they won’t be able to go any further …like college” (Group #8). Students also recommended that a skills training programme be part of the curriculum or programme options at the secondary level to present an alternative educational pathway for some students who are unable to successfully engage with the dominantly academic nature of the current secondary school curriculum.

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Discussion Examining justifications for USE Firstly, the insight provided by the research findings as it relates to justifications for pursuing USE shows evidence of two deep concerns: lack of clarity at the school level as it relates to national justifications for pursuing USE, and a disparity between education administrators’ stated reasons for pursuing USE, and the national conceptualisation of secondary education as articulated in education policy plans for Grenada. While education administrators at the ministry level were able to articulate their perceptions regarding what they believed to be the justifications for pursuing universalised access to secondary education, this clarity was glaringly absent at the school level. Both principals and teachers revealed this in their responses. There are strong indications that this lack of clarity regarding the justifications for the implementation of USE may have contributed to the high level of concerns expressed by both principals and teachers regarding the policy’s perceived negative impact on education quality. This is obviously a critical factor to be addressed in planning for implementation of USE at the school level. The effort made by the Ministry of Education to engage stakeholder consultations is evidence of a basic awareness of the importance of stakeholder consultations to effecting successful policy implementation. However the limitations of this consultation to the union level rather than engaging schools directly may have been a weakness as it relates to planning for implementation. The aspect of the tale as it relates to justifications could therefore only be articulated at the ministry level through the voice of educational administrators and not at the school level through the voices of principals and teachers. Secondly, analysis of the administrators’ responses regarding the justifications for USE in Grenada provides insight into two perceived main drivers for USE: a belief in the provision of secondary education for every child, and a desire to fulfill external education policy commitments regarding the provision of basic education. This first justification while evident at the sub-regional level (Miller et al., 2000) is however not directly evident in the education strategic plan for Grenada – SPEED II. While establishing that “every individual has the right to access to education for lifelong learning” (SPEED II, 2005, p. 08), as it relates to secondary education SPEED II clearly articulates the following: a) Secondary education should be premised upon the attainment of the goals of primary education, b) Secondary education should provide a foundation for access to and successful completion of tertiary education, c) Completion of secondary education is seen as the minimum standard for basic preparation for the world of work. Local administrators’ justification that the inability to previously provide a place at the secondary level for every child had been traditionally limited by school capacity and academic merit is supported and explained by the findings of Knight (2014) as it relates to the implementation of USE in Grenada. Knight (2014) in outlining the implementation process provided insight into the policies which guided the transfer process. The Ministry’s policy informing the transfer process was the practice of awarding a place at the secondary level for the best performing 11-12 year old students who would have attained the desired ‘pass mark’ on the basis of having completed the CEE. The pass mark however was not a fixed performance grade to be attained by students, but rather a flexible performance score that was dependent each year on the number of classroom places available for facilitating student transfer. This

The Caribbean Educational Research Journal 111 nnumber of places available was affected in any given year by a number of factors inclusive of classroom expansion, and student retention levels at the secondary schools. The second driver for USE in Grenada appears to be its regional educational commitments. As one of the nine member states of the sub-regional Organization of Eastern Caribbean States, Grenada was committed to a harmonised sub-regional education policy framework which highlighted universalised access to education as a regional goal to be pursued and achieved by 2015. This sub-regional policy framework was developed by all nine member states with deliberate alignment to the international EFA and MDG educational targets to which the wider Caribbean region was also signatory as members of the Caribbean Community (CARICOM) Miller et al., 2000; UN Department of Economic and Social Affairs/UN (UNESCO, 2000; Department of Public Information, 2005). This sub-regional agenda feeds into broader regional and international commitments to EFA and MDG’s goals.

Shared Concerns for Educational Quality The global post-2015 education and developmental agenda has taken a more direct approach to shaping secondary education by highlighting the goal of the pursuit of universalised access to basic education as not being limited to the primary level but necessarily inclusive also of secondary level schooling (UIS/UNICEF, 2015; UNESCO/UNICEF, 2013). Unlike many other developing countries in Asia, the Caribbean is way ahead in the implementation of this educational goal. The question which persists is how should the secondary education system be structured to ensure that access results in individual student success? Critical to responding to this question however is the need to respond to the experiences shared by multiple school-level stakeholders such as principals, teachers and students regarding the impact of USE on schools. The findings generally reveal that principals believe that secondary schools currently lack adequate and relevant resources to meet the needs of the newly-included groups of students, given increased disparities in students’ knowledge, skills, abilities and interests. Teachers’ concerns on the other hand were specifically focused on the negative impact they perceived that universalised access to secondary education has had on the quality of their overall output, i.e., the results of teaching evident by student performance on standardised exams. Their concerns mainly relate to increased challenges in the classrooms due to student diversity and the increased strain this placed on them as teachers. The responses of the teachers and students reflect a belief that transition should be based on student readiness, rather than automatic promotion. This feeling is generally in support of a conceptualisation of secondary education that reflects the old model but with a more stringent focus on student acquisition of the basic literacy, numeracy and communication skills at the primary school level. However in recognition of the new context that is the current reality shaped by the policy of USE, both teachers and students were supportive of differentiated secondary education to meet the needs of the current secondary education. An interesting observation from the findings was the contrasting feelings of teachers and students regarding current educational quality. While teachers were convinced that educational quality was currently under threat, students shared the opposite view. Students expressed sincere faith in the current education quality, and believed that it was a good one that would prepare them for success in life. This belief did not blind them to the fact that there were problems; an awareness they were quite willing to express (Knight & Obidah, 2014). However this obvious faith in the education system must be honored, upheld and maintained at all costs. 112 V. Knight

Teachers specifically expressed support for the introduction of alternative schools, and developing joint education programmes among schools to address the needs of students with challenges. Teachers’ responses show evidence of their awareness of their own limitations as it relates to training and development and expressed a general willingness to participate in appropriate collaborative programmes for developmental purposes. Students on the other hand expressed the need for increased options for students to pursue skills training at the secondary level; especially those students facing significant difficulties with the academic-oriented nature of the secondary education programme. While the responses of principals simply indicate that better preparation of secondary schools to meet the new demands is needed, the responses of the teachers and students seem to strongly support specifically differentiating instruction and/or programmes and pathways for students transferred to the secondary level. Teachers and principals serve as key gatekeepers of educational quality and by extension students’ preparation for success in life and work. If the educational gatekeepers are questioning the educational quality they are able to provide then as educational administrators and policy makers we must stop and listen. The research findings did not provide data to allow the researcher to delve deeply into the factors teachers perceived as having a detrimental impact on educational quality, but a general idea could be obtained as teachers identified threats such as students’ poor literacy skills; insufficient teaching and learning resources to adequately teach all students; an inadequate curriculum which was no longer suitable for meeting all students’ needs; overcrowded classrooms which made teaching difficult, and inadequacies in their teacher training as the traditional training which was suited for teaching at the secondary level was now unable to enable them to adequately meet the needs of all students.

Conclusion In an era of universalised access to secondary education, research and reports repeatedly emphasise the need for education systems, and by extension schools, to maintain a parallel focus on education quantity and education quality in order to achieve the ultimate goal of educational success for each child. In the Caribbean the question of what is the best way forward for improving the quality of educational outcomes in Caribbean secondary schools continues to dominate educational forums. Consensus is yet to be reached as to whether education for all should mean that secondary education must look the same for every child or whether secondary education should be re-conceptualised to provide multiple pathways responsive to the varying interests, needs, and capabilities of students. This paper confirms the need for urgent decision making in this regard, and provides support from the perspectives of education administrators, school leaders, teachers and students toward the development of multiple pathways in secondary education to fully address the demands of educational inclusion.

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