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Volume 9 , Number 2, August 2024 

 ISSN : 2579-8383 (Print) ISSN : 2579-8405 (Online) 

 

  

Grade Repetition, School Drop-Out and Ineffective School Policy  

 
Amiena Bayat, Nontandazo Kohli, Siphe Madyibi 

Economic and Management Sciences Faculty, University of the Western Cape, South 
Africa  

abayat@uwc.ac.za    
 

Accepted: 
May 14th 2024 

Reviewed: 
July 18th 2024 

Published: 
August 28th 2024 

 

Abstract  
This study examines the prevalence of underperformance, grade repetition, and drop-out rates in 
selected underperforming schools within the Amathole West District, Eastern Cape Province. The 
investigation covered a five-year period and consistently revealed high failure rates in the targeted 
schools. Key informants, including teachers and principals, identified the Promotion and 
Progression Policy as a contributing factor to these failure rates. A primary criticism is that the 
responsibility for helping learners catch up falls disproportionately on teachers, while students 
themselves exert minimal effort. Moreover, the study highlights that, in addition to the promotion 
policy and inadequate resources, both in-school and out-of-school factors affect academic 
performance. Among these factors, weak and inconsistent leadership has led to fluctuating pass 
rates over the years. 
 
 Keywords: :  Underperformance, Promotion and Progression Policy, Amathole West District, Eastern 

Cape, academic performance 

 

 By Authors 
This work is licensed under a Creative Commons Attribution-ShareAlike 4.0 International 
License. 

 

Introduction 

Underperformance, grade repetition, and school drop-out rates continue to plague 

historically and economically disadvantaged schools in democratic South Africa, particularly in 

regions still grappling with the legacy of apartheid-era inequities 1. This paper seeks to investigate 

the multifaceted factors contributing to underperformance, as reflected in grade repetition and 

school drop-out rates, in a sample of underperforming schools located in the Amathole West 

District, Eastern Cape Province. As one of the poorest provinces in the country, the district suffers 

from systemic challenges such as pervasive poverty, inadequate service delivery, high 

unemployment, and limited economic development2. These socio-economic factors, combined 

with institutional weaknesses, form the backdrop against which this study examines the 

 
1 Mncedisi Christian Maphalala and Nontobeko Prudence Khumalo, “Curriculum Management in KZN Rural 

High Schools,” Advances in Educational Marketing, Administration, and Leadership (IGI Global, 2021), 
http://dx.doi.org/10.4018/978-1-7998-7168-2.ch001. 

2 Department of Cooperative Governance and Traditional Affairs, 2020 

http://creativecommons.org/licenses/by-sa/4.0/
http://creativecommons.org/licenses/by-sa/4.0/


 
 

  
 
  

Volume 9, Number 2,  August 2024| 82 

 

  

intersection of educational policy and academic outcomes. A particular focus is placed on the 

Promotion and Progression Policy, implemented in the Further Education and Training (FET) 

Phase in 2013, which has sparked considerable debate among educators, policymakers, and 

scholars due to its perceived role in perpetuating underperformance. 

At the advent of democratic rule in 1994, South Africa’s education system was envisioned 

as a vehicle for dismantling intergenerational inequalities and enabling upward social mobility for 

historically disadvantaged populations. Although significant strides have been made in expanding 

access to primary education, the quality of educational outcomes—particularly in secondary 

education—remains a pressing concern. The nearly universal gross enrolment rates at the primary 

school level, which stood at 99% and 98% in 2018 and 2019, respectively (World Bank, 2022), 

mask a more troubling reality: the persistently high rates of grade repetition and drop-outs, 

particularly in secondary education. Despite government accolades for consistently achieving 

matric pass rates above 70% over the past decade, these statistics conceal the fact that 

approximately one-quarter of learners fail their final high school examinations. Even more 

concerning is that less than 5% of learners who begin their schooling journey in primary school 

go on to obtain a university degree 3. The declining enrolment and pass rates in critical subjects 

such as mathematics, accounting, and physical science further compound the problem, 

undermining efforts to improve educational outcomes 4. 

Central to this discussion is the Promotion and Progression Policy, which was introduced 

to regulate learner progression by limiting grade repetition to no more than four years within a 

particular phase. This policy, while well-intentioned, has been criticized for inadvertently 

exacerbating academic underperformance. The policy’s stipulation that learners should progress 

with their age cohort, even in the absence of the requisite academic achievements, places undue 

pressure on educators who are tasked with remedying learners’ deficits without adequate 

institutional support. As a result, teachers are left to juggle current curricular demands alongside 

the remediation of learning gaps, while many learners fail to engage meaningfully in their own 

educational development. Critics of the policy argue that it has contributed to an erosion of 

academic standards, particularly in schools located in economically disadvantaged areas, where the 

cumulative effect of socio-economic hardships and institutional inefficiencies further hinders 

educational progress. 

In addition to the shortcomings of the Promotion and Progression Policy, the selected 

schools in this study face myriad in-school and out-of-school challenges. Institutional factors such 

as weak leadership, inconsistent governance, and inadequate resourcing have contributed to 

fluctuating pass rates over time. The influence of external factors, including the socio-economic 

conditions of the community, is equally significant. For example, poverty, food insecurity, and lack 

of access to basic resources all contribute to poor learner outcomes. Furthermore, the Eastern 

Cape, which encompasses the former Xhosa homelands of Transkei and Ciskei, was historically 

 
3 Montfort Mlachila and Tlhalefang Moeletsi, “Struggling to Make the Grade: A Review of the Causes and 

Consequences of the Weak Outcomes of South Africa’s Education System,” IMF Working Papers 19, no. 47 (2019): 1, 
http://dx.doi.org/10.5089/9781498301374.001. 

4 B Macupe, “Students ‘Dreams Are Crumbling,’” Mail & Guardian (2020). 



 
 

  
 
  

Volume 9, Number 2,  August 2024| 83 

 

  

subjected to the racially discriminatory “Bantu” education system. The long-lasting impact of this 

system is evident in the persistently poor educational outcomes in the province. Notably, the 

Eastern Cape has the lowest average years of schooling compared to other provinces 5, and the 

Amathole West District includes some of the worst-performing schools in the province 6. 

This study draws on both document analysis and primary data collected from four 

underperforming schools in the Amathole West District. The specific research objectives are as 

follows: (1) to identify and analyze the factors that contribute to low performance, grade repetition, 

and drop-out rates in the selected schools, and (2) to evaluate the effectiveness of the Promotion 

and Progression Policy in these schools, particularly in relation to observed academic outcomes. 

The theoretical framework guiding this study is Bronfenbrenner’s 7ecological systems 

theory, which provides a comprehensive lens through which to understand the complex, 

interrelated factors that influence educational outcomes. Bronfenbrenner’s model posits that 

educational achievement is shaped by multiple, nested systems that interact with one another. 

These systems range from micro-level factors, such as the classroom environment, to macro-level 

influences, such as national educational policies and socio-economic conditions 8. In the context 

of this study, the Promotion and Progression Policy is examined as a macro-level influence that 

interacts with other systems, such as school leadership, classroom dynamics, and community 

socio-economic conditions, to shape learner outcomes. Bronfenbrenner’s model is particularly 

useful for understanding how contextual factors—both within and outside the school 

environment—contribute to variations in academic performance and how these factors can either 

support or hinder educational success. 

Furthermore, Bronfenbrenner’s theory emphasizes the importance of considering the 

interplay between various systems in understanding educational outcomes. For example, weak 

school leadership may exacerbate the negative effects of the Promotion and Progression Policy, 

while strong leadership might mitigate some of these effects by fostering a supportive learning 

environment. Similarly, community-level factors, such as parental involvement and socio-

economic stability, can significantly influence learner performance. Thus, this study seeks to 

explore the ways in which these various systems interact to shape educational outcomes in 

underperforming schools in the Eastern Cape. 

 

Method 

This study employed a mixed-methods approach, combining both qualitative and quantitative 

research techniques to investigate the factors influencing underperformance in selected schools. 

The use of a mixed-methods design enabled a comprehensive analysis, where qualitative interviews 

 
5 Statistics South Africa, 2021 
6 Ronelle Burger et al., “Use of Simulated Patients to Assess Hypertension Case Management at Public 

Healthcare Facilities in South Africa,” Journal of Hypertension 38, no. 2 (2020): 362–367. 
7 Steven C Hertler et al., “Urie Bronfenbrenner: Toward an Evolutionary Ecological Systems Theory,” Life 

History Evolution: A Biological Meta-Theory for the Social Sciences (2018): 323–339. 
8 N C Perron, “Bronfenbrenner’s Ecological Systems Theory,” College student development: Applying theory to practice 

on the diverse campus 197, no. 23 (2017): 1–10. 



 
 

  
 
  

Volume 9, Number 2,  August 2024| 84 

 

  

and discussions provided rich, in-depth insights, while the quantitative data facilitated 

measurement and objective comparison of school performance. 

 

Rationale for Selecting the Study Area 

The Eastern Cape Province is predominantly rural and characterized by high levels of 

unemployment and illiteracy9. Within this region, the Amathole West education district, located in 

the eastern part of the province, includes some of the most underperforming education districts 

(Hompashe, 2018). This observation is supported by the 2011 population census, which found 

that the cluster A and B districts in the eastern part of the province consistently performed worse 

compared to the cluster C districts in the west (Department of Basic Education [DBE], 2013). The 

Amathole West district was specifically chosen for this study due to its high proportion of schools 

that underperformed in the 2018 National Senior Certificate (NSC) examinations. Table 2 below 

provides a breakdown of school district performance in 2018. 

Table 2: School Districts' Performance in 2018 

 

District Name Number of Secondary 

Schools (2018) 

Number of Schools 

Achieving Less Than 60% 

Proportion of 

Underperforming Schools 

(%) 

Alfred Nzo East 36 11 31% 

Alfred Nzo West 75 17 23% 

Amathole East 88 27 31% 

Amathole West 95 59 62% 

Buffalo City 125 39 31% 

Chris Hani East 53 14 26% 

Chris Hani West 87 35 40% 

Joe Gqabi 49 19 39% 

Nelson Mandela 99 24 24% 

OR Tambo Coastal 69 19 28% 

OR Tambo Inland 98 28 29% 

Sarah Baartman 50 21 42% 

Grand Total 924 313 
 

Source: Primary data from 

the ECDOE, 2018. 

   

 

Despite implementing an operational plan aligned with the 2016–2018 Provincial Educational 

Transformation Plan, which included strategies such as merging small schools, strengthening 

district offices, and improving teacher training and resource allocation, the Amathole West district 

continued to underperform (ECDOE, 2018). 

 

Sample Selection 

The researchers employed purposive sampling to select four secondary schools from the 59 

underperforming schools in the Amathole West district. The schools were chosen based on their 

 
9 Eastern Cape Department of Education [ECDOE], 2015 



 
 

  
 
  

Volume 9, Number 2,  August 2024| 85 

 

  

socio-economic context, academic performance, and geographic proximity to the researcher, who 

resides in Cape Town. The sample included two schools in a semi-urban township, one in a rural 

area, and one in an urban area. All schools selected were classified as Quintile 3 institutions, 

meaning they do not charge school fees and operate in low-income communities (schools in 

Quintiles 1–3 are classified as no-fee schools, while Quintiles 4 and 5 charge fees). 

The final sample consisted of four school principals, four Education District Officers (EDOs) 

from the Amathole West district, and three teachers from each school. The total sample included 

four principals and 12 educators. 

 

Data Collection Instruments 

The study utilized different questionnaires tailored to the roles of principals and educators. 

Additionally, an interview schedule was prepared for the EDOs. The questionnaires facilitated 

semi-structured interviews with principals and educators teaching Grades 10–12 in the selected 

schools. In total, four principal questionnaires and 10 educator questionnaires were completed. 

Originally, the study was designed for face-to-face engagement; however, due to the COVID-

19 pandemic and its associated social distancing regulations, the researcher adopted non-contact 

data collection methods. Structured questionnaires were distributed via email, and follow-up 

communication with participants for clarification was conducted via telephone. Data collection 

commenced in March 2021 and concluded on June 30, 2021. 

 

Research Results and Discussion 

Underperformance in South African schools, particularly in rural and disadvantaged areas, has 

been a subject of significant academic and policy discussion. The performance gap between well-

resourced and under-resourced schools has been identified as a critical driver of educational 

inequality 10. Several studies have highlighted that systemic challenges—ranging from teacher 

competence, poor infrastructure, and inadequate resources—disproportionately affect schools in 

rural areas, exacerbating learner underperformance 11. Furthermore, policies such as the Promotion 

and Progression Policy, introduced to regulate grade repetition, have been criticized for promoting 

learners without ensuring they have achieved basic learning outcomes, contributing to a cycle of 

underperformance and increased drop-out rates 12. 

The concept of “learned helplessness” 13 also plays a crucial role in explaining why students who 

fail to grasp foundational knowledge early in their educational careers may disengage from learning 

 
10 Servaas van der Berg et al., “Low Quality Education as a Poverty Trap,” SSRN Electronic Journal (2017); Servaas 

Van der Berg et al., “The Cost of Repetition in South Africa,” SSRN Electronic Journal (2019), 
http://dx.doi.org/10.2139/ssrn.3505854. 

11 Grasia Chisango et al., “Teachers’ Perceptions of Adopting Information and Communication Technologies in 
Teaching and Learning at Rural Secondary Schools in Eastern Cape, South Africa,” Africa Education Review 17, no. 2 
(2019): 1–19, http://dx.doi.org/10.1080/18146627.2018.1491317. 

12 Mlachila and Moeletsi, “Struggling to Make the Grade: A Review of the Causes and Consequences of the 
Weak Outcomes of South Africa’s Education System.” 

13 Bollen Mukela Chataa and David Nkengbeza, “Challenges Faced by Primary School Teachers in Implementing 
the Automatic Promotion Policy at a School in the Zambezi Region,” Creative Education 10, no. 07 (2019): 1731–1744, 
http://dx.doi.org/10.4236/ce.2019.107123. 



 
 

  
 
  

Volume 9, Number 2,  August 2024| 86 

 

  

altogether. This theory is supported by Spaull’s 14work, which argues that learners who fall behind 

in early grades are unlikely to catch up, creating cumulative deficits in learning that manifest as 

poor academic performance and eventual drop-out. These findings are particularly relevant in rural 

and township schools, where socio-economic factors, such as poverty 

The performance of schools in rural and disadvantaged areas in South Africa has been 

consistently linked to systemic inequities in resourcing, teacher quality, and infrastructure 15. 

Studies have shown that these factors, combined with socio-economic challenges such as poverty 

and unemployment, disproportionately affect educational outcomes in these schools 16. The issue 

of grade repetition, compounded by policies such as the Promotion and Progression Policy, has 

also received substantial attention. The policy, introduced to regulate grade advancement, is 

criticized for promoting students without ensuring that they have mastered the necessary 

competencies, which results in learners being pushed through the system while accumulating 

significant learning deficits 17. 

Another key concept relevant to this discussion is learned helplessness, where students, after 

repeated academic failures, lose motivation to engage in schoolwork and eventually disengage 

altogether. This theory is supported by Spaull's research, which argues that learners who do not 

grasp foundational concepts in early grades often struggle to catch up, and these gaps widen as 

they progress through the system. In rural contexts, additional challenges such as long travel 

distances to school and poor community support further exacerbate these issues 18. 

 

Findings 

School Performance in Amathole West District (2016–2020) 

Table 3 below outlines the annual pass rates for the selected schools over the five-year period 

from 2016 to 2020. 

Table 3: Annual Pass Rates (2016–2020) 

School 2016 2017 2018 2019 2020 Average 

(A) Township School 66% 42% 16% 47% 59% 46% 
(B) Township School 80% 67% 56% 47% 65% 63% 
(C) Urban School 30% 41% 42% 58% 55% 45% 
(D) Rural School 23% 24% 23% 25% 20% 23% 
Source: Primary data 

      

 

According to the South African Schools Act (SASA), underperforming schools are defined as 

those achieving less than a 65% matric pass rate (Equal Education Law Centre, 2022). Based on 

this definition, Urban School ‘C’ and Rural School ‘D’ consistently underperformed, with Rural 

School D showing particularly low performance, averaging just 23% over the five years. The poor 

 
14 van der Berg et al., “Low Quality Education as a Poverty Trap.” 
15 Ibid.; Van der Berg et al., “The Cost of Repetition in South Africa.” 
16 Chisango et al., “Teachers’ Perceptions of Adopting Information and Communication Technologies in 

Teaching and Learning at Rural Secondary Schools in Eastern Cape, South Africa.” 
17 Mlachila and Moeletsi, “Struggling to Make the Grade: A Review of the Causes and Consequences of the 

Weak Outcomes of South Africa’s Education System.” 
18 John W Sipple and Brian O Brent, “Challenges and Strategies Associated with Rural School Settings,” 

Handbook of Research in Education Finance and Policy (Routledge, n.d.), http://dx.doi.org/10.4324/9780203961063.ch34. 



 
 

  
 
  

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performance of Rural School D is in line with research indicating that rural schools are often 

neglected in terms of resource allocation, infrastructure, and support from the Department of 

Basic Education 19. Learners in rural schools are more likely to face challenges such as long travel 

distances, contributing to learner fatigue and reduced engagement in learning, which ultimately 

leads to lower pass rates 20. 

 

Operational Challenges and Leadership 

The investigation also uncovered significant operational and leadership challenges, particularly 

in Rural School D. Frequent changes in school leadership, coupled with inadequate district 

support, contributed to the school’s deteriorating performance. Over a three-year period, the 

school had changed principals three times, resulting in a lack of continuity in management and 

strategy. This finding resonates with the literature on the importance of stable and effective 

leadership in educational settings 21. Strong leadership is crucial for setting a school’s vision, 

fostering collaboration among educators, and ensuring accountability in both teaching and learning 

(Spaull, 2019). The absence of these qualities in School D led to a dysfunctional learning 

environment, exacerbating the school’s already poor performance. 

By contrast, Urban School ‘C’, which showed signs of improvement in recent years, benefitted 

from strong leadership, characterized by a committed principal who effectively managed 

relationships with the school management team, educators, and parents. This aligns with findings 

from Scheerens & Creemers 22 that transformational leadership can significantly improve school 

performance, even in challenging socio-economic contexts. School ‘C’ saw an increase in pass rates 

over the principal’s three-year tenure, underscoring the impact of leadership on academic 

outcomes. 

 

Erratic Performance in Township Schools 

The pass rates of Township Schools ‘A’ and ‘B’ revealed erratic patterns over the five-year 

period. For example, Township School ‘B’ achieved an 80% pass rate in 2016, but this dropped to 

47% in 2019 before recovering to 65% in 2020. This inconsistency is indicative of systemic 

instability, as outlined in Van der Berg et al. 23, where schools serving low-income communities are 

often more vulnerable to fluctuations in performance due to factors such as teacher absenteeism, 

resource shortages, and high learner turnover. Additionally, the high failure rates in these schools 

were linked to significant grade repetition rates, further reflecting the inadequacies of the 

Promotion and Progression Policy 24. 

Amathole West School Drop-out Rates (2016–2021) 

 
19 Ibid.; Burger et al., “Use of Simulated Patients to Assess Hypertension Case Management at Public Healthcare 

Facilities in South Africa.” 
20 Sipple and Brent, “Challenges and Strategies Associated with Rural School Settings.” 
21 Jaap Scheerens, “Effective Schooling: Research Theory and Practce” (1992). 
22 Ibid. 
23 Van der Berg et al., “The Cost of Repetition in South Africa.” 
24 Mlachila and Moeletsi, “Struggling to Make the Grade: A Review of the Causes and Consequences of the 

Weak Outcomes of South Africa’s Education System.” 



 
 

  
 
  

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The drop-out rates across the selected schools from 2016 to 2021 are presented in Table 4 

below. 

Table 4: Drop-Out Rates (2016–2021) 

School 2016 2017 2018 2019 2020 Total 

(A) Township School 48 39 48 51 35 221 
(B) Township School 12 3 38 19 18 90 

(C) Urban School 50 20 5 24 7 106 
(D) Rural School 16 13 1 15 9 54 

Source: Primary data 
      

 

The results show that three of the schools experienced high drop-out rates, with a total of 483 

learners dropping out over the five-year period. Township Schools ‘A’ and ‘B’ saw the highest 

drop-out rates, with 221 and 90 learners respectively, while Rural School ‘D’ had the lowest drop-

out rate (54 learners). However, the low drop-out rate at School D corresponds with its extremely 

high repetition rates, suggesting that learners are being retained in the system without significant 

progress, ultimately leading to failure. This finding is consistent with research by Van der Berg et 

al., which shows that repetition without remedial support exacerbates poor learner outcomes and 

leads to disengagement. 

 

Drop-out by Grade and Gender (2016–2020) 

Table 5 provides a breakdown of drop-out rates by grade and gender, showing that most 

drop-outs occurred in Grades 10 and 11, a critical period for learners in the South African 

educational system. 

Table 5: Drop-Out by Grade and Gender (2016–2021) 

Grade Gender Total Count  
Female Male 

8 41 (15.9%) 64 (21.8%) 
9 51 (19.8%) 51 (17.4%) 
10 90 (34.9%) 95 (32.4%) 
11 60 (23.3%) 70 (23.9%) 
12 16 (6.2%) 13 (4.4%) 

Source: Primary data 
  

 

 

These findings reflect the significant drop-out rates occurring in Grade 10 (33.6%), 

coinciding with the transition to the Senior Phase. This is consistent with other studies 25 that 

identify Grade 10 as a particularly challenging point for learners, where subject specialization, 

increased workload, and socio-economic pressures converge, resulting in higher drop-out rates. 

This transition often places learners under increased academic pressure, while also exposing them 

to socio-economic challenges such as substance abuse, unplanned pregnancies, and family 

responsibilities 26. 

 

 
25 Statistics South Africa, 2021 
26 Emekako Raymond and Ward Lesego, “Contributing Factors to Learner Drop Out in a Public School in 

Ngaka,” The Social Sciences 12, no. 3 (2017): 459–466. 



 
 

  
 
  

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Discussion 

The findings of this study align closely with existing literature on educational 

underperformance, particularly in disadvantaged and rural regions of South Africa. The 

underperformance of schools in the Amathole West District is not unique but rather reflects 

broader systemic issues that have been highlighted in previous studies. Research has consistently 

shown that factors such as inadequate teacher training, poor leadership, insufficient resources, and 

the socio-economic challenges faced by learners are key contributors to poor educational 

outcomes 27. This study confirms these findings, revealing that schools located in economically 

disadvantaged areas, particularly rural schools, face multiple, overlapping challenges that impede 

their ability to provide quality education. 

 

Leadership and School Management 

The role of school leadership was a significant factor influencing the performance of the 

schools in this study, particularly when comparing Rural School D and Urban School C. Scheerens 

and Creemers 28emphasize the importance of strong, transformational leadership in educational 

settings, which is supported by the relative success of Urban School C. Despite being located in a 

high-poverty area, the strong leadership of the principal contributed to improved pass rates. The 

principal’s ability to foster a positive school culture, maintain effective communication with 

parents, and manage the school’s resources effectively allowed for a level of resilience against 

external socio-economic pressures. This aligns with Spaull’s  assertion that no education system 

can rise above the quality of its educators and leadership. 

Conversely, the leadership instability at Rural School D severely impacted its performance. 

Frequent leadership changes, coupled with minimal district support, created an environment of 

uncertainty and disengagement among staff and learners. The study found that the principal’s 

inexperience and the lack of continuity in management practices contributed to the school’s 

dysfunction. This is in line with Hompashe 29, who argues that rural schools, often isolated and 

under-resourced, are particularly vulnerable to leadership instability. The findings suggest that 

stable, experienced leadership is critical for overcoming some of the inherent challenges faced by 

schools in disadvantaged areas. 

 

The Role of Socio-Economic Factors 

The socio-economic context in which these schools operate cannot be overlooked. As noted 

by Sipple and Brent 30, rural learners often face unique challenges, including long travel distances 

to school, which contributes to fatigue, absenteeism, and reduced time for learning. In this study, 

the rural location of School D, combined with high poverty levels, was a significant factor in its 

 
27 van der Berg et al., “Low Quality Education as a Poverty Trap”; Van der Berg et al., “The Cost of Repetition 

in South Africa”; Chisango et al., “Teachers’ Perceptions of Adopting Information and Communication Technologies 
in Teaching and Learning at Rural Secondary Schools in Eastern Cape, South Africa.” 

28 Scheerens, “Effective Schooling: Research Theory and Practce.” 
29 Burger et al., “Use of Simulated Patients to Assess Hypertension Case Management at Public Healthcare 

Facilities in South Africa.” 
30 Sipple and Brent, “Challenges and Strategies Associated with Rural School Settings.” 



 
 

  
 
  

Volume 9, Number 2,  August 2024| 90 

 

  

poor performance. Many learners in rural areas are forced to prioritize family responsibilities or 

employment over their education, which directly impacts their engagement and academic success 
31. 

The high repetition rates in Rural School D also underscore the inadequacies of the 

Promotion and Progression Policy. This policy, which is intended to limit the number of years a 

learner can spend in one phase, has had unintended consequences, particularly in schools with 

limited resources. The findings from this study suggest that learners who are promoted without 

mastering foundational skills struggle to cope with the increased demands of higher grades, leading 

to high failure and repetition rates. This resonates with Mlachila and Moeletsi’s 32critique of the 

policy, which argues that promoting learners without adequate support only exacerbates their 

learning deficits. 

 

Grade Repetition and Drop-Out Rates 

The study’s findings on the relationship between grade repetition and drop-out rates support 

the view that repetition without targeted intervention is counterproductive. Spaull  argues that 

early learning gaps, particularly in foundational subjects such as literacy and numeracy, are difficult 

to reverse, and this study provides further evidence of this phenomenon. The high drop-out rates, 

particularly in Grade 10, highlight the long-term consequences of accumulated learning deficits. 

As learners progress through the school system without mastering basic skills, their disengagement 

increases, leading to eventual drop-out. This is consistent with Van der Berg et al. , who note that 

the South African education system’s high drop-out rates are a result of learners falling further 

behind each year, culminating in their exit from the system before completing matric. 

The concentration of drop-outs in Grade 10 is a particularly important finding. In South 

Africa, Grade 10 is a pivotal year when learners begin to specialize in subjects aligned with their 

career prospects. The increased difficulty of the curriculum, combined with socio-economic 

pressures such as substance abuse, pregnancy, and the need to contribute to household income, 

results in many learners leaving school during this phase 33. The data from this study show that 

both males and females are affected, although slightly more males dropped out, which is consistent 

with broader trends in South Africa (Statistics South Africa, 2021). These findings underscore the 

need for targeted interventions during the critical transition from junior secondary to senior 

secondary education. 

 

Policy Implications and Systemic Challenges 

The Promotion and Progression Policy remains a point of contention in the South African 

education system. While the policy aims to reduce the negative effects of grade repetition, such as 

stigmatization and disengagement, it has inadvertently resulted in learners being promoted without 

the necessary skills to succeed in higher grades. This has been particularly damaging in schools 

 
31 Ibid. 
32 Mlachila and Moeletsi, “Struggling to Make the Grade: A Review of the Causes and Consequences of the 

Weak Outcomes of South Africa’s Education System.” 
33 Raymond and Lesego, “Contributing Factors to Learner Drop Out in a Public School in Ngaka.” 



 
 

  
 
  

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serving disadvantaged communities, where teachers are already overburdened and under-

resourced. The findings from this study confirm that the policy, as it currently stands, is not 

adequately addressing the needs of learners in underperforming schools. Educators in this study 

reported that the policy places an additional burden on teachers, who are expected to teach learners 

both the current grade’s curriculum and remediate the gaps from previous years. This dual 

responsibility, in the context of large class sizes and limited resources, is untenable and contributes 

to high failure and drop-out rates 34. 

Moreover, the lack of government support in implementing the policy effectively in under-

resourced schools was a recurring theme in the interviews. Chisango et al. 35 highlight that many 

schools in South Africa, particularly those in Quintiles 1 to 3, operate with significant 

infrastructural and material deficits, such as a lack of libraries, laboratories, and teaching aids. These 

deficits make it nearly impossible for schools to provide the remedial support that is essential for 

learners who are promoted despite not meeting the required standards. The Eastern Cape, in 

particular, has some of the most under-resourced schools in the country, many of which still 

operate in dilapidated buildings, further exacerbating the challenge 36. 

The findings of this study reinforce the view that educational underperformance in South 

Africa, particularly in rural and disadvantaged regions, is a multifaceted issue driven by a 

combination of poor leadership, socio-economic challenges, inadequate resources, and ineffective 

policy implementation. The Promotion and Progression Policy, while well-intentioned, has had 

unintended negative consequences, particularly in schools that are already struggling to provide 

basic education. The study highlights the need for a more nuanced approach to policy 

implementation, one that takes into account the specific needs of under-resourced schools and 

provides the necessary support to both learners and educators. Without such interventions, the 

cycle of underperformance, repetition, and drop-out is likely to continue, with long-term 

consequences for both the learners and the broader South African economy. 

1. Policy Revision: The Promotion and Progression Policy should be reviewed to include 

targeted support for learners who are promoted without meeting academic standards. This 

support should include remedial teaching, smaller class sizes, and additional resources for 

teachers. 

2. Leadership Development: Investment in leadership training for school principals, 

particularly in rural and underperforming schools, is critical. Effective leadership has been 

shown to improve school outcomes even in challenging contexts. 

3. Increased Resourcing for Rural Schools: Addressing the infrastructural deficits in rural 

schools is essential for improving learner outcomes. This includes providing access to basic 

educational materials, as well as developing transportation solutions to reduce the burden 

of long travel distances on learners. 

 
34 Endeley Margaret Nalova, “School Type and Mathematics Achievement in English-Speaking Primary Schools 

in Cameroon: Implications for Technological Development,” American Journal of Educational Research 5, no. 5 (2017): 
568–573, http://dx.doi.org/10.12691/education-5-5-15. 

35 Chisango et al., “Teachers’ Perceptions of Adopting Information and Communication Technologies in 
Teaching and Learning at Rural Secondary Schools in Eastern Cape, South Africa.” 

36 Ibid. 



 
 

  
 
  

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4. Support for At-Risk Learners: Early intervention programs targeting learners at risk of 

drop-out, particularly in Grade 10, should be implemented. These programs should focus 

on academic support, as well as addressing the socio-economic factors that contribute to 

drop-out, such as poverty, substance abuse, and family responsibilities. 

 

Conclusion 

This study examined the factors contributing to underperformance, grade repetition, and 

school drop-out in underperforming schools within the Amathole West District of South Africa, 

a region marked by historical and socio-economic disadvantages. The research focused on the 

impact of the Promotion and Progression Policy, implemented in 2013, and its role in exacerbating 

the challenges faced by these schools. The findings confirm that underperformance, grade 

repetition, and drop-out rates remain persistent issues in historically marginalized schools, where 

academic underachievement is compounded by deficiencies in school management, governance, 

and resource allocation, as well as threats to the safety and well-being of students and staff. 

The study explored the specific factors influencing low performance in four secondary 

schools selected from the 59 underperforming schools in the district, based on their performance 

in the 2018 National Senior Certificate (NSC) examinations. The Amathole West District was 

chosen due to its high concentration of underperforming schools, which consistently displayed 

poor academic outcomes over the examined period. The research highlighted that a significant 

number of school drop-outs occur during the transition to the Senior Phase, particularly in Grade 

10, and that most drop-outs take place during the first half of the academic year. 

The Promotion and Progression Policy emerged as a key factor contributing to the 

underperformance of the schools studied. Educators reported that the policy fails to achieve its 

intended goals, as it allows learners to be promoted to the next grade without having mastered the 

content of the current grade. This has placed additional burdens on teachers, who are tasked with 

addressing both current curriculum requirements and the learning deficits of promoted students. 

Teachers generally hold a negative view of automatic promotion, as it undermines the learning 

process and exacerbates academic failure, particularly in under-resourced schools. 

The findings of this study underscore the broader crisis facing South Africa’s basic education 

system, particularly in disadvantaged areas like the Amathole West District. Until the government 

acknowledges the depth of this crisis and takes ownership of the responsibility to address it, the 

systemic issues that perpetuate poverty and low educational outcomes will continue to impact 

future generations. Comprehensive policy reforms, increased resources, and targeted support for 

both learners and educators are essential if the cycle of underperformance and failure in public 

education is to be broken. 

 

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