Chapter 1. INTRODUCING EDUCATION REFORMS
1.6. Policy Implementation Analysis
Pressman and Wildavsky (1973) explain that policy implementation is the process of interactions between the setting of goals and the actions geared to achieving them. It only succeeds when the ends are achieved through the proper setting of goals and the resultant benefits by the end users. Decision-making in the policy implementation process is an important component; however, it goes through a number of stages before reaching the target groups. In this view, the authoritative decision at the central level is supposed to create a desirable impact at local levels for intended goals to be achieved. The implementation of policy may occur through a single administrative agency’s efforts. However, good cohesion and coordination between various organizations would yield better results. It is important to understand that policy decisions are taken in consideration of the contextual realities of operationalization.
Policy implementation is a challenging task especially in the government bureaucratic system and the social environment as there are different levels of policy flows. Therefore, the good intended policy from central government may dilute at both regional and lowest level of the implementation process. This is particularly so if appropriate emphasis is not observed towards various obstacles and hindrances.
In this context, the study analyses ‘Education Policy’ implementation based on vertical and horizontal perspectives in the decision-making process of the school system. The vertical perspective covers three layers of the government structure: central government, dzongkhag and local levels. The horizontal perspective covers different levels of schools and the actors and institutions involved with and from primary to higher secondary schools. The study was carried out within these spatial layers to investigate policy implementation realities and challenges in relation to their location as well as different levels of schools. There are diverse challenges like
CHAPTER 1: INTRODUCING EDUCATION REFORMS
remoteness, unfavourable topography and inaccessibility to socio-economic development which itself affect directly or indirectly the implementation of policies in schools. Moreover, the research attempts to analyse implementation gaps and problems in the policy flows from central government to local levels. It also sought to find out the factors affecting implementation of policy at different levels of the government system and identified the key players and actors.
Figure 2 Vertical and Horizontal Policy Flow Chart
The vertical level refers to Central Government which consists of the national government, MoE and the Gross National Happiness Commission (GNHC), as key players in policy formulation and planning. Dzongkhag refers to twenty dzongkhags where policies from the centre are targeted and the lowest level refers to local schools within the dzongkhag where ultimately policies are materialised. In the horizontal perspective, schools at different locations like rural and urban areas were analysed to unearth the variations in policy implementation and to investigate whether any links between actors and institutions have been created. The vertical perspective looks at linkages in policy flows and whether the intended policies of the central government are administered within the levels without distortion. It includes a scrutiny of the decentralization process of policy implementation as this policy is already embedded in the governance system that Paudel refers to as the “…relationship to policy as laid down in official documents” (2009, p.1) or what Critical Discourse Analysis (CDA) defines meaning-making which may be open to
different interpretations (Fairchough, 2003, p.11). The entire analysis is focused on identifying the gaps and flows and interpretations of the policies in order to determine how well policies are implemented according to the overall policies of the MOE.
This type of policy analysis necessitates the identification of factors affecting implementation at other levels as well as their effectiveness with a view to reinforce the new policy. On this account, it is important to look at not only the geographical location of the dzongkhags and schools their facilities and infrastructure are varying from one another, but due consideration should also be taken to analyse the factors in the context of political, socio-economic and cultural constraints that may impact policy implementation. It is argued by Paudel that “implementation inevitably takes different shapes and forms in different cultures and institutional settings” (2009, p.1). It is likely to be the case because of the recent changes from absolute monarchy to democratic government and the continued attempts towards decentralization where policy implementation might have changed across the horizontal and vertical perspectives within the governing system and polity itself. The policy implementation analysis also considers the proximity and accessibility of districts and various schools to communication, media, exposure through workshops and trainings and also the frequency of information updates by the concerned authorities.
The following is a list of policies considered for analysis:
At central level:
• Understanding the formulation of national education policy guidelines
• Understanding of policy decisions at the national level
• Preferences of policy decisions
• Rating of general education policy
• Curriculum policy
Regional and Local levels:
• Medium of policy dissemination/flows
• School management policy
• General practice of GNH in schools
• Access to education policy
• School health and emergencies
• Quality of education
• Teaching-learning resources and ICT in education
• School infrastructure
• Human resources policy
CHAPTER 1: INTRODUCING EDUCATION REFORMS