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The Multiple Streams Framework and the 1996 and 2007 Educational Reforms in Ghana

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The Multiple Streams Framework and the 1996 and 2007 Educational Reforms in Ghana Advances in Research 5(3): 1-15, 2015, Article no.AIR.17697 ISSN: 2348-0394 SCIENCEDOMAIN international www.sciencedomain.org The Multiple Streams Framework and the 1996 and 2007 Educational Reforms in Ghana Antwi Boasiako 1 and Bossman E. Asare 2* 1Department of Political Science, Brock University, Ontario, Canada. 2Department of Political Science, University of Ghana, Legon, Ghana. Authors’ contributions This work was carried out in collaboration between both authors. Both authors are collectively responsible for the outcome of the manuscript. Article Information DOI: 10.9734/AIR/2015/17697 Editor(s): (1) Ali Said Mohamed Al-Issa, College of Law, Sultan Qaboos University, Sultanate of Oman. Reviewers: (1) David Barney, Teacher Education, Brigham Young University, USA. (2) Ibrahim El-Zraigat, The University of Jordan, Amman, Jordan. (3) George Dei, Ontario Institute for Studies in Education, University of Toronto, Canada. Complete Peer review History: http://sciencedomain.org/review-history/9961 Received 24 th March 2015 th Policy Article Accepted 20 May 2015 Published 29th June 2015 ABSTRACT The paper examines the formulation of the Free Compulsory Universal Basic Education policy and the Kuffour-led education reforms in the education system of Ghana in 1996 and 2007 respectively. The study is undertaken through the lens of the Multiple Streams Framework (MSF) developed by John Kingdon in 1984 to underscore how different factors or streams collectively influence the adoption of certain policies. The paper argues that far more than mere pursuit of party manifesto promises, broad problem, policy and political occurrences conspired to call forth the reforms. By so doing, the paper puts the theoretical assumptions of MSF to test and finds that though developed within the context of the American democratic system to explain policymaking, the MSF finds utility in the Ghanaian context as well, making its postulations generalizable. Keywords: Education reform; problem stream; policy stream; politics stream; policy window; policy entrepreneur. _____________________________________________________________________________________________________ *Corresponding author: E-mail: [email protected]; Boasiako and Asare; AIR, 5(3): 1-15, 2015; Article no.AIR.17697 1. INTRODUCTION pushing through the respective reforms. It is further argued that as a consequence of the The current tripartite structure of Ghana’s ambiguity that prevailed in the political system at education system is the product of a long history the time of the reforms, the aforementioned of reforms. In the early years following Ghana’s individuals, by resort to their esteemed statuses independence, the nation was praised as having took advantage of the happenings within the one of the finest education systems in Western political system to push for a particular policy Africa [1]. This notwithstanding, successive proposal out of the lot to address the problems governments have always felt dissatisfied with that were perceived within the education system. the education system they inherited. In what has now become a tradition, various governments There are two discernible strands of thought in are never shy of effecting reforms in the the literature on the education policy of Ghana education system in the bid to make it responsive that provides context for this study. One strand of to the national needs [2,3]. Looking back into the thought focuses on a longitudinal study of nation’s post-independence experience, various education reforms in relation to a myriad of other reforms in the education sector have been variables within the context of national carried out in 1961, 1967, 1974 and 1987. All, development of Ghana. These historiographical except the 1961 reform, were supervised by studies have examined the nation’s education military regimes. In spite of these several systems and cover the colonial as well as the reforms, little is known about the very processes post-independence era of the country’s history that preceded the policies that were formulated. [2,7-9]. Over the course of the post- Ohemeng [4] has observed that the policymaking independence period of Ghana’s history, a new environment during this period could be body of literature has emerged which provides described as a ‘closed circuit network’ of the second strand of thought. This literature politicians and senior bureaucrats, with focuses on an evaluative account of the various assistance from expatriates. That is, often education policies of the country. In the latter apprehensive of popular participation, military strand, the literature has primarily answered the governments always kept the policymaking ‘why’ question. Thus the literature has focused process tight-knit and away from public on examining the various policies of the country participation. by focusing on the ineffectiveness and deficiencies of each existing policy that Having spent the preceding 11 years under accounted for the adoption of a new policy to military dictatorship, the country returned to address the previous lapses. In this way, this constitutional rule and multiparty democracy in literature has mainly focused on the 1992 and thus began the Fourth Republic. implementation, evaluation and termination Consequently, the dynamics of politicking phases of the public policy cycle [10]. changed drastically. The political space began to Accordingly, general economic decadence, the be loosened and in the process, Ghana broke downside of Ghana’s pursuit of the Structural ties with the ‘culture of silence’ that became Adjustment Program (SAP), a mass exodus of synonymous with politics for the most part of the trained teachers to neighboring countries, 1980s [5]. Thus far, the country has alternated especially Nigeria in the wake of the 1983 famine power twice between the National Democratic in the country, budgetary cuts in supply of Congress (NDC) and the New Patriotic Party teaching aids and textbooks and poor (NPP). In both instances, the education policy of remuneration for teachers are often cited as the nation has been a point of public discourse. some of the problems in the education system In keeping with the standard tradition, both the that have necessitated reforms in the country NPP and the NDC have reformed the education over the years [11-16,3,17-20]. policy of the country. Braimah, Mbowura and Alidu [6] have noted that education reform in the While perceiving the existing literature as country is inextricably linked with a change in instructive, this paper identifies two main gaps government. Focusing on the Fourth Republican which it seeks to fill. Firstly, the paper identifies dispensation, this paper examines the relevant that by focusing on answering the ‘why’ question, documents and data and finds that as a the literature has largely overlooked the ‘how’ consequence of the weakly developed question. In essence, the literature has failed to institutional arrangements at the time of the account for how the various education policies of reforms in 1996 and 2007, the entrepreneurship the country were formulated (that is, the very of Harry Sawyerr and John Kufour were crucial in processes that went into the formulation 2 Boasiako and Asare; AIR, 5(3): 1-15, 2015; Article no.AIR.17697 process). As a result, the paper, by focusing on the economy. In effect, this is a small ‘n’ the Fourth Republican dispensation, seeks to qualitative study of public policymaking in Ghana. account for how the Free Compulsory Universal The population sample, however, is the Basic Education (FCUBE) policy and the Kufour- education system of the country. Consequently, led 2007 Education policy were formulated. The this paper is a case study of the two main paper specifically focuses on the problem education reforms carried within Ghana’s Fourth identification, agenda setting, and policy adoption Republican dispensation. A case study as a phases of the policy process. Secondly, the methodological approach in policy studies is an paper posits that the existing literature remains intensive study of a single case with the view to largely descriptive and theoretical issues are shedding light on a larger class of similar cases generally overlooked. In its second contribution, [22]. That is, in the bid to understand this paper seeks to apply a public policy theory to policymaking for the period under review, this account for how the aforementioned policies paper concentrates and intensively examines the were formulated. It is hoped that this paper will education sector of Ghana to ascertain how the make a modest contribution to the literature by two reforms were undertaken by the various introducing a third strand of thought that focuses governments that have ruled the country thus far. on the agenda setting, policy formulation and policy adoption phases of the policy process To provide structure to the issues to be [21,10]. discussed, the paper adopts the diachronic case study method of social research [23,24]. A The rest of the paper is divided into four parts diachronic case study is a systematic and organized as follows. In the first section, examination of a single case within two time methodological and theoretical issues are periods. Thus, within the Fourth Republic, Ghana discussed. This section provides the conceptual has undertaken two different education reforms framework which forms the basis of the various in 1996 and 2007 and these time periods form analyses undertaken throughout the paper. In the the focus of the research. This kind of second section, the paper focuses on the agenda investigation makes for a considerable degree of setting and policy formulation of the FCUBE time to analyze the reform processes within the under the presidency of Jerry John Rawlings and case so as to gather information about the the NDC government which spanned from 1996 problem identification, agenda setting and policy to 2005. Using the Multiple Streams Framework adoption of the respective policy reforms. (MSF) of John Kingdon as a theoretical guide, this section will construct the three identifiable Overall, the research design is presented with a streams and how the policy entrepreneur took major challenge.
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