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You will obtain the author’s permission before publishing any material from the thesis. “That’s the price we pay” Kaupapa Māori Programme stakeholder experiences of external evaluation A thesis submitted in fulfilment of the requirements for the degree of Doctor of Philosophy in Psychology at The University of Waikato by BRIDGETTE MASTERS-AWATERE (Te Rarawa, Ngai te Rangi, Tūwharetoa ki Kawerau) 2015 Dedicated to my parents: Hector James Masters (5 May 1941 – 20 July 2011) my father, who dared me to ask questions; and Rangiamohia Masters (nee Whetu) (2 January 1941 – 16 May 2010) my mother, who taught me to critique the answers. iii ABSTRACT __________________________________________________________________ This thesis takes a critical approach to the evaluation of Māori social and health service provision progammes through an in-depth exploration of the dynamics, impacts and politics of such exercises within Māori communities, and upon relationships between Māori and the Crown, and its agents. Since the mid 1980s, New Zealand government devolved responsibilities that heralded a change in economic focus and provided a pathway for targeted service provision, such as social and health programmes, amongst communities. The combined shift to Neoliberal economics and the virtual hegemony enjoyed by right wing economic commentators, policy-makers and business leaders meant that newly anointed Māori service providers were not fully prepared for the subsequent rise in demand for narrowly defined accountability requirements that did not reflect Māori aspirations or values. This study sought to critically engage with the experiences of stakeholders affected by an external evaluation of “By Māori, for Māori” services. Qualitative data capturing stakeholder narratives, demonstrated the complex relationships and range of emotions experienced by programme stakeholders. Four case studies contain stories that highlight: service provider relationships built on betrayal that contributed to programme tensions and influenced the design of the evaluation; different stakeholder information needs that shaped their expectation of an evaluation; service provider vulnerability when implementing cultural values with their funder, who then seeks financial gain from that knowledge, and; the close links of Kaupapa Māori programmes and their evaluations to socio-cultural and political agendas. The cases highlight ways Māori evaluators operated from a reflexive approach that recognised two worldviews (Mātauranga Māori and the dominant models of Western social science) and sought to facilitate engaged evaluation relationships with different stakeholders. A proposed Cultural Confluent Evaluation model lays out the dynamics and tensions in an attempt to make visible the underlying agendas, but also the glossed ideologies of power and control attached to conventional evaluations. As existing programmes continue to be examined for their cultural responsiveness, and as new culturally-centred programmes are proposed, the need for culturally embedded evaluation is even more evident. v ACKNOWLEDGEMENTS __________________________________________________________________ While my name may appear as the sole author, this thesis is not the result of my work alone. Along the way there have been many people who have helped, guided and influenced me. Without all of your help, I would not have been able to acquire the skills, knowledge and patience needed to complete a doctorate degree. I want to thank the rōpū that gave me permission to work with them, and were willing to support my research. Your enduring commitment helped motivate me through this project. Beyond the direct research participants noted in this thesis were those people who influenced my thinking before and during this journeythrough employment opportunities, working conversations or words of positive support. Particular thanks go to those who gave me doctoral awards: Ngā Pae o te Māramatanga, BRCSS and the Ministry of Health. I also acknowledge the President’s Award from the NZPsS, and the James Ritchie Fellowship from School of Psychology. Te Puni Kōkiri and the Health Sponsorship Council extended provider contracts that granted me the resources to continue my work with rōpū. Assistance from Manu-Ao and Mai ki Waikato through workshops and writing retreats were much appreciated. Thank you to my colleagues in the Māori & Psychology Research Unit who carried my workload when I was flagging. A special thank you to Linda Waimarie Nikora who used her salary recovery to cover my teaching; your generosity enabled me to dedicate my time to complete my thesis. As with all research of this type, there were supervisors; Dr Thomas Kalliath, Professor Michael O’Driscoll, Dr Michelle Levy, Professor Jane Ritchie, Dr Neville Robertson, Dr Heather Hamerton and Professor Linda Waimarie Nikora. There were also my “unofficial supervisors” who helped me get through - Shaun Awatere, Moana Waitoki, Rose Black, Mohi Rua, Ngahuia Te Awekotuku and Donna Cormack. To my staunchest supporters who kept this in perspective - Shaun, Tahunuiorangi and Ngāwairoimata who had to share my time and energy while I undertook this project – nui te aroha. vii TABLE OF CONTENTS __________________________________________________________________ ABSTRACT ............................................................................................................................. v ACKNOWLEDGEMENTS .............................................................................................. vii TABLE OF CONTENTS .................................................................................................... ix LIST OF TABLES & FIGURES ........................................................................................ xi PROLOGUE ........................................................................................................................ xiii CHAPTER ONE: INTRODUCTION .............................................................................. 1 Māori resilience and evaluation ............................................................................. 1 History and evolution of evaluation ................................................................... 18 Evolution of evaluation in New Zealand .......................................................... 26 The present study .................................................................................................. 38 CHAPTER TWO: RESEARCH METHODOLOGY ................................................... 45 Theoretical framework and approach ................................................................ 45 Governments favour objective evaluation ........................................................ 46 Indigenes favour subjective evaluation .............................................................. 51 Case study approach ............................................................................................. 70 Ethics, research procedure, participants and analysis ...................................... 74 Data collection procedures .................................................................................. 79 Analysis ................................................................................................................... 84 Introducing the case studies ................................................................................ 90 CHAPTER THREE: STUDY ONE ................................................................................. 95 The origins of He Oranga Marae, its deliverables and funder ....................... 97 Data collection methods for this case study .................................................. 109 The evaluation (in brief) .................................................................................... 112 Stakeholder expectations of the evaluation .................................................... 114 Stakeholder responses to the evaluation ......................................................... 117 Critical issues in the He Oranga Marae case .................................................. 122 CHAPTER FOUR: STUDY TWO ................................................................................ 131 The origins of Whaia te Ora, its deliverables and funder ............................. 132 Data collection methods for this case study .................................................. 140 The evaluation (in brief) .................................................................................... 142 Stakeholder expectations of the evaluation .................................................... 148 Stakeholder responses to the evaluation ......................................................... 153 Critical issues in the Whaia te Ora case .......................................................... 156 ix CHAPTER FIVE: STUDY THREE .............................................................................