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Moment of Rupture Moments of Rupture Changing the State Project for Teachers: A Regulation Approach Study in Education Industrial Relations by Patricia Gay Simpkin A thesis submitted to the Victoria University of Wellington in fulfilment of the requirements for the degree of Doctor of Philosophy in Industrial Relations Victoria University of Wellington 2002 CONTENTS Contents Page Abstract v Acknowledgements vi Abbreviations vii List of Figures viii Chapter 1 Introduction The Context 1 The Thesis 3 The Case Study 4 The Analytical Framework 7 Including Ideological Influences 9 The Structure 10 References 13 Chapter 2 Regulation Theory Introduction 14 Regulation Theory 19 Concepts 21 The Regulation Approach to the State 25 Connecting the Regulation Approach and Education Policy 27 Connecting the State and Education 31 The Relative Autonomy of the Classroom 34 Conclusion 36 Chapter 3 Connecting the Research Problem, the Case Study, and Regulation Theory – Methodological Considerations Introduction 39 Defining the Research Problem in Terms of the Regulation Approach 39 Introducing the Case Study 41 Factors Affecting the Case Study 44 Industrial Relations as a Heuristic Device 45 The Researcher as Participant 48 Specifics of the Research 53 Conclusion 56 Chapter 4 The Discourse of the PPTA – The Keynesian Welfare National State Educational Settlement The Education Settlement of the KWNS 58 The Ideology of the KWNS Education Settlement 59 Theory and Educational Research within the KWNS 62 The KWNS Education Partnership 67 Discontinuities with the Discourse 69 Chapter 5 Teachers, Professionalism, Pay-fixing and their Union Introduction 74 Teacher Professionalism 76 Teacher Professionalism and the State 78 Education Industrial Relations and State Pay-fixing 80 PPTA as the Voice of Secondary School Teachers 84 ii Contents Page PPTA and Accountability before the Reforms 89 The Professional Understanding of Accountability 90 The System Relating to Discipline Prior to Legislative Change in 1989 95 Addressing Teacher Competence as a Separate System 97 The Scott Committee 98 Conclusion 102 Chapter 6 The Interacting Discourse and Resulting Policies Introduction 104 The Theoretical and Philosophic Components 105 Economic Rationalism 107 New Public Management 108 Public Choice Theory 109 Managerialism 113 Elaboration of Concept of Provider Capture 115 Accountability 118 Labour Market Reform 119 Specific Policy Mechanisms in the State Sector in New Zealand 120 The Influence of the Treasury Briefings on Policy Directions 121 Labour Market Restructuring in New Zealand 124 Review of State Pay-fixing 125 The State Sector Act, 1988 127 Conclusion 130 Chapter 7 Picot and Tomorrow’s Schools: The First Encounter between Education and State Sector Restructuring Introduction 131 Approaching Social Policy 131 The Picot Report 133 Tomorrow’s Schools 139 Response of Teachers and their Educators to the Interacting Discourse 142 Conclusion 156 Chapter 8 Business as Usual and Portents of Change Introduction 157 The Staffing Campaign 160 Pay Rises in a Changing Environment 162 The Conditions Initiative 166 The Classification Review – The PPTA’s Answer to Managerial Accountability 168 Managerial Prerogative, Principals and the PPTA 170 Response to the Reform of State Pay-fixing 174 The 7% “Deal” 177 Conclusion 179 Chapter 9 The Long Negotiation – The First Year Introduction 181 The 1987/88 Salary Round 185 Arbitration 194 The Results 195 Codification 200 The Picot Report and Tomorrow’s Schools 205 Conclusion 209 iii Contents Page Chapter 10 The Long Negotiation – 1989 – Issues of Accountability: Managerialism vs. Professionalism Introduction 211 Overview 211 The Strategic Environment for the Government and SSC 213 The Strategic Environment for the PPTA 215 SSC Preparation 217 PPTA Preparation 221 The Encounter 225 Stage One: Contracts for Principals and Ranges of Rates 226 Stage Two: Discipline and Competence 232 State Three: Legislation of Contracts for Principals 238 Outcomes 240 Conclusion 243 Chapter 11 Concluding Remarks Introduction 246 The Utility of the Regulation Approach for this Case Study 247 Dale’s “Black Box” 249 Using Industrial Relations as a Tool of Analysis 252 Contribution to the Body of Knowledge 254 References 258 List of Interviewees 273 iv ABSTRACT The purpose of this thesis is to examine the response of secondary school teachers to the Tomorrow’s Schools education reforms. Their early response was made largely through their union, the Post Primary Teachers’ Association (PPTA), in an industrial relations setting as the reform proposals were in development and taking their final shape. The interaction between the professional project of these teachers with the proposed reforms produced an outcome for secondary school education shaped by the interaction, rather than just by the reforms themselves. A case study situated at the intersection of industrial relations, state sector and education restructurings during the period 1984 – 1989 is the focus of the thesis. The argument is located within French regulationalist theory. The concept of the Keynesian Welfare National State provides a means for connecting education as part of the mode of regulation with the role of the state in New Zealand. The Fourth Labour Government entered into a political project that shifted the role of the state in the economy and society. The roots of the project lay in the discourse of economic rationalism. Policy resulting from this discourse was put into operation through legislation affecting all parts of the state. In education, the discourse of economic rationalism introduced a new approach, the values of which were at odds with those of the previous education settlement of the Keynesian Welfare National State. The object of the thesis is to trace the process of change within the secondary schools sector of education through the years 1984 – 1989 as the two different sets of values interacted. The assumption is made that institutional change results from a dynamic interaction between new ideas and continuities and discontinuities with the past. This allows for the possibility of the effects of agency on public policy. Analysis focuses on a series of industrial negotiations between the PPTA and the State Services Commission, the negotiating body for government. They took place as various government policy documents and resulting legislation altered the positioning of teachers within the state. The negotiations were of such a character that the educational discourses of economic rationalism and the education settlement of the Keynesian Welfare National State came into conflict and were debated at length. The thesis concludes that, by the end of the negotiations and despite the introduction of legislation on education, the values of secondary teachers remained substantially unchanged and in opposition to the intent of the government reforms. v ACKNOWLEDGEMENTS This thesis has been eight years in the making. Over that period I have entered into many discussions with texts and with colleagues, and all aspects of my intellectual framework have been challenged. I have also received more support than anyone has the right to expect from family and friends. First, heartfelt thanks are due to my supervisor, Pat Walsh, for his unstinting and generous support through more years than I am sure he anticipated at the outset. He never doubted that I would finish, when all evidence was to the contrary. His patience and encouragement, particularly in the last year, have been invaluable. Time, technical assistance, and collegiality have been provided by the Centre for Labour and Trade Union Studies at the University of Waikato, the Management and Employment Relations Department at the University of Auckland, and, not least, Victoria University of Wellington. Both the PPTA and the SSC provided me with generous access to their files. The interviewees were stimulating in their willingness to enter discussion on what were historic and draining negotiations. Thanks are due to Iris Hutchinson and Robin Peace, together and separately, for all those ground-shifting conversations over nearly 20 years. Joce Jesson made herself available whenever I needed to talk. Alison Jones provided me with advice and counselling about the process when I despaired. Finally, I cannot adequately express my gratitude to the members of family and friends who have provided me with accommodation, proofreading, and other skills as they were needed, and generally encouraged and supported me through the process. They have also endured my talking about the thesis for far longer than they or I thought possible. They know who they are. vi ABBREVIATIONS CSU Combined State Unions CTA Combined Teachers’ Association KWNS Keynesian Welfare National State NPM New Public Management NZCER New Zealand Council for Educational Research NZEI New Zealand Educational Institute NZNO New Zealand Nurses’ Organisation NZPPTA see PPTA PAC Principals’ Advisory Committee POU Post Office Union PPTA New Zealand Post Primary Teachers’ Association PSA Public Service Association RA Regulation Approach SPANZ Secondary Principals’ Association of New Zealand SSA Act State Sector Act, 1988 SSBA Secondary Schools Boards Association SSC State Services Commission SSCC State Services Coordinating Committee SSCE Act State Services Conditions of Employment Act, 1977 SSR Secondary Staffing Report SWPR Schumpeterian Workfare Post-national Regime TRB Teachers’ Registration Board vii LIST OF FIGURES Figures Pages Figure 1: Structural Adjustment in New Zealand 8 Figure
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