Inclusive education as a global movement emerged over the past 30 years to ensure quality mainstream education for all learners. Since 1994 the newly democratic South Africa also had expectations as well as the political will to change education by adjusting legislation and policies. However, the vision of a truly inclusive education system in South Africa has been difficult to achieve and results regarding the implementation of inclusive education remain questionable. There has been a growing realisation that the advent of democracy was not in itself a sufficient condition for the elimination of historical and structural inequalities in education with as recurring theme the dissonance between the government's socio-political imperative for change and economic realities. This article focuses on the development of policy and guidelines on inclusive education in dynamic interaction with the complexity of realities in South African schools with a special focus on the policy recommendations regarding the development of full-service schools. The constant comparative analysis of the two phased case study of a full-service school in a rural town revealed interesting results illustrating the complexities regarding the implementation of inclusive education and the challenges and opportunities in bridging the gap between the idealism of policies and the realities in schools.

Inclusive education is a fundamental right of all students. Despite international policy initiatives, educational exclusion is pervasive, especially in the Global South, and disproportionately affects disabled students. Barriers to inclusive education have been itemised in the literature, but in this conceptual paper that offers a novel perspective on the topic, we argue for a complexity approach to understand its evolution. Using a qualitative deductive content analysis of South African laws, policies, reports and scholarly literature, we explore three path dependencies from colonial/apartheid times that lock the country into historical patterns of categorisation and segregated schooling. These operate alongside the emergence of new and inclusive practices by actors at a system-wide and local level, made possible by inputs into the policy ecology. South Africa represents a complex, contradictory educational environment that confounds the expectation of linear progression towards greater inclusivity. Instead of identifying barriers to inclusive education, we argue for a nuanced understanding of the imbrications of historical investments and drivers of inequality, with policy possibilities and the impetus for transformation among system actors.

South African Journal of Education