Unmasking complexities involved in operationalising UPE policy initiatives: Using the ‘fCUBE’ policy implementation in Ghana as an exemplar

Abstract

In most parts of the world today, the goal of providing all children with free and Universal Primary Education (UPE) has received broad national and international support and some educational systems have evolved from predominantly ‘fee-charging’ towards ‘fee-free’ status in recent times. In Ghana, for example, the endorsement of Education for All (EFA) and millennium development goals (MDGs) agreements coupled with commitment to internal constitutional reforms have resulted in the initiation of the Free Compulsory Universal, Basic Education (fCUBE) policy. Dishearteningly however, in many low-income countries (including Ghana), verbal commitments to these laudable social goals do not appear to be translated into the needed changes in policy and practice. This article draws on a case study of the fCUBE policy implementation to provide insights into the complexities involved in operationalising UPE policy initiatives in sub-Saharan Africa. The methodological approach involved the critical discourse analysis of interviews with Ghanaian education officials who mediate policy at the ‘mesolevel’. Owing to the commitments of the fCUBE policy to enhancing the educational opportunities and outcomes for the socially and economically disadvantaged, the paper sees it (i.e. the fCUBE policy) as deeply rooted in social democracy. However, it is argued that as long as there is a blurring in meaning of the intentions encapsulated in its title, primary education in Ghana cannot be said to be ‘free’, ‘compulsory’ and ‘universal’. It is concluded that accentuating policy purposes in low-income countries is not inherently problematic but that the challenges lie with how the intentions and provisions of policy are conceptualised and operationalised in context.