South African Qualifications Authority: Strategic Plan 2012

Meeting report

South African Qualifications Authority (SAQA) Strategic Plan 2012
Mr Joe Samuels, Chief Executive Officer, South African Qualifications Authority, noted that this body (SAQA) would serve lifelong learners by being visible and driving co-ordination of the National Qualifications Framework (NQF), including interaction with the Green and White papers on education, and the future operations of the education institutions.

He added that it was important to position SAQA as a value-adding organisation, through further development of the NQF. SAQA also wanted to enhance research capacity and would ensure credibility by steering policy, legislative and conceptual debates on key priorities. It worked to create and maintain a system that would recognise quality articulated learning, which removed systemic barriers to access, allowed for progression and easy navigation. SAQA also wanted to enhance capacity and value the contribution of staff towards ensuring organisational effectiveness.

SAQA’s strategic objectives were linked to its legislative mandate to advise the Minister, and inform policy-makers on all NQF matters. SAQA provided support to NQF partners towards systemic coherence, articulation and implementation. It assisted with dispute resolution amongst the Quality Councils (QCs). The system of operation compelled SAQA and the QCs to work together. SAQA could intervene on any dispute within a QC, but if the conflict was between SAQA and a QC, then the Department of Higher Education and Training (DHET) and the Minister could resolve the matter. All of the interested parties had agreed to the system of operation.

Another strategic objective was to ensure effective governance and compliance with statutory requirements and codes, as applicable to SAQA. SAQA aimed to fulfil its role as leader, overseer and guardian of NQF values. This included coordinating an effective public NQF advocacy and communication strategy. The Act required SAQA to develop an implementation framework after consultation with the QCs. SAQA had taken into account a directive from the Minister and there had been consultation with the QCs.

Mr Samuels noted that there were certain key priorities identified for the full implementation of the NQF, and these included:
- The transition from the SAQA Act to the NQF Act
- The need to develop a system of operation between SAQA and the QCs.
- The coordination of the three sub-frameworks of the NQF, and establishment of mechanisms in each
- Completion and putting into operation the apparatus for articulation
- Development and implementation of the information apparatus of the NQF

He noted  that National Careers Advice Services (CAS) should be fully developed, with the adequate capacity required to service the country, by 2014. He stressed that SAQA also recognised professional bodies, and their designations would be put on the NQF by 2015. A policy on criteria had been developed for professional bodies, and it would come before the SAQA Board on 6 June. SAQA had also been working on a pilot project with ten professional bodies. A booklet had been compiled on the accredited qualifications and institutions.

Mr Samuels noted that the sub-frameworks had been issued for public comment and the DHET was in the process of compiling all the comments. A conference on Recognition of Prior Learning (RPL) had been held in the previous year, and a working document was developed on the latest thinking around RPL. Resolutions in that document called on the Minister to set up a Ministerial Task Team (MTT), which had been done, and this MTT had met three times already. Mr Samuels served on this team.

Mr Samuels said there was a set of agreed level descriptors that outlined the ten levels of the NQF. This was agreed to by SAQA and the QCs. SAQA went around the country explaining the level descriptors.

SAQA also aimed to support targeted education, training and development communities to become effective leaders in NQF leading practices. There was a helpline that people could phone into, as well as a website and a radio programme in order to reach the rural communities.

SAQA had developed partnerships with organisations to improve its research capability. It had a partnership with the University of the Western Cape in the area of RPL, and there were valuable lessons learnt from that. A research report was compiled on the Further Education and Training (FET) colleges and FET lecturers, and this had informed the advice and a Green Paper on FETs.

SAQA would commission and publish reports on issues of importance to the development and implementation of the NQF. It also aimed to collaborate with international counterparts and keep its NQF partners informed. This would advance lifelong learning. SAQA wanted to register high quality, and international comparable qualifications.

Mr Samuels noted that SAQA would maintain a National Learner's Records Database (NLRD), and also develop and maintain level descriptors. Further to the recognition of professional bodies, it would register professional designations on the NQF. These objectives were related to addressing systemic barriers.
He also expanded on the Career Advice Service, noting that this was to be both a policy framework and a navigational tool in the advancement of lifelong learning. SAQA would also provide an evaluation and advisory service with respect to foreign qualifications, paying particular attention to scarce skills. SAQA was working closely with DHET on these matters.

Mr Mark Albertyn, Chief Financial Officer, SAQA, tabled and explained the financial presentation. He noted that the budget was based on SAQA's mandate, in terms of the NQF Act. Personnel costs had been adjusted, and SAQA was implementing performance level adjustments for staff. SAQA had increased evaluation fees on foreign qualifications, and the NLRD verification service, by 6%, to generate funds. He noted that these services were rendered in terms of the mandate from the Department of Public Service and Administration (DPSA). Income from the NLRD verification services would be R9,5 million.

The inflation was estimated to be around 5,3% and, according to a National Treasury directive, SAQA had to use resources more effectively and efficiently.

Mr Albertyn said R44.9 million had been committed for the current financial year. SAQA would look for further funding for its programmes, especially the Career Advice Services programme. It wanted to increase the staff complement by three permanent and seven casual positions, and indicated that it would also be appointing  eleven learners and six interns in the current financial year. The cost on employee salaries would decrease following the closure of some programmes, and because extra funding was not yet obtained.

He indicated that the rollover funds from 2011 stood at R9,6 million, but there was not expected to be any rollover in the 2013/14 and 2014/15 financial years. Verification fees would decrease from R9.5 million to R3 million next year. Transfers were received from a government grant and the National Skills Fund (NSF).

Mr Albertyn noted that the funding from government did not even cover personnel costs at SAQA. It was expected that the accumulated rollover funds would be depleted during this financial year, and SAQA's ability to deliver on its mandate would be affected. SAQA had initiated a re-prioritisation process and was now implementing cost saving measures. Areas that would be affected were the coverage of SAQA's initiatives in the media, advocacy projects to raise awareness of the NQF, research, development of the Southern Africa Development Council (SADC) portal, and development of SAQA’s capacity to function as a high technology organisation.

Mr Albertyn said that SAQA would, every year, identified budget risks and their likely impact. On the financial side, SAQA identified insufficient budget and the fact that it could meet expectations, due to limited resources. It already struggled to retain its experienced staff. A lot of time and energy had been invested in skilling the staff, and it had strategies to try to counter this risk. Another risk was that the IT systems were not sufficiently strong, and this raised the risk that people could hack into SAQA's system. Access required from outside SAQA drew attention of mischief makers who could attack the servers, resulting in unacceptable recovery times. Another potential concern was that SAQA could be highly exposed to reputational risks if it did not deliver effectively on verifications. In addition, particularly in regard to NLRD, there was a risk of disseminating incorrect information and not meeting stakeholders' needs. Another challenge was that the operational capacity at QCs was slow. This impacted on the whole NQF system, but with the appointment of the CEO and some senior staff the system was functioning better. However, this had already impacted on SAQA’s ability to provide advice on an area of key importance for the development and implementation of the NQF. The intellectual project of the NQF was not consolidated and was not further developed.

Career Advice Services briefing
Ms Ntsiki Gumbe, Director, SAQA, said the Career Advice Services (CAS) was a Ministerial flagship project, to be run by SAQA. She wanted to focus on the radio campaign and the Mandela Day career festival. Both campaigns were designed to promote career guidance. The objective of these campaigns was primarily to provide information on post-school options, and in particular SAQA wanted learners who had finished Grade 12 to consider other educational opportunities than proceeding to university. These other opportunities included FET colleges, learnerships, and skills programmes. Students were encouraged to research institutions and programmes widely, and to ensure that they were registered under the NQF, prior to registering with them. If students registered with programmes that were not NQF-aligned they might encounter problems. SAQA was also promoting the fact that SAQA-accredited programmes assured the students of quality and a nationally-recognised qualification.

She pointed out that there was a plethora of career options, and SAQA’s CAS was called “Ketha” (an isiXhosa word for “choose”). The SAQA programme was targeted at high school learners, and SAQA guided and encouraged them in making decisions on subjects and careers. The radio campaign started in January 2011, using ten public broadcasting radio stations. Weekly programmes covered topics on FET colleges, the programmes offered, the application process, universities and universities of technology. Students who had completed these programmes were invited as guest speakers. Funding options were also covered.

The programmes also informed learners on their subject choices, and the information was made available in ten languages. The average listenership was 2.1 million people per week, and the primary target was rural people who lacked access to other opportunities. SAQA also used print media to supplement the radio campaign. It had a career phone advice line, and an SMS line, and would use inserts into community newspapers.  The SAQA website also had considerable information on qualifications, funding and institutions of higher learning.

In the last year, SAQA conducted research into whether the radio campaign reached the target audience, and was considered to give value. Although the research sample of 500 listeners in different provinces was not large, the overall results were positive, and showed that 48% of the listeners were learners, 24% were young unemployed youths, and the rest were the general public. The programme clearly was reaching high school learners, and was considered relevant. Radio stations reported that phone lines were jammed with people wanting information. SAQA used the feedback to further improve the programmes' content. A particular recommendation emanating from research was that SAQA should make use of community radios, and that would be a focus area in the financial year, as well as social media.

Ms Gumbe then described the Mandela Day project, which had now been running for two years. It started in Giyani (Limpopo), as a venue to which learners and schools were invited to hear presentations from Sector Education and Training Authorities (SETAs), the FETs and universities of technology. It was emphasised that prospective students needed to apply in good time and not wait for matric results. Last year, the career exhibition was hosted over three days in Lusikisiki in Eastern Cape. In 2012, the exhibition would move to Pudimong in the North West, and SAQA hoped to have 6 000 learners attend over four days. The overall message was that learners should research the application process, and register early.

Mr Samuels noted that there were both proactive and reactive ways that SAQA employed to deal with the situation where unscrupulous operators offered bogus qualifications. Proactive stances were outlined in the presentation (see attached document), but SAQA also had the NQF and CAS helplines and a helpdesk. It interacted in workshops and exhibitions to inform the public, and would investigate complaints and interact also with providers. It would ask the public to check that providers were registered, and whether their qualifications were accredited. Any unscrupulous practices were reported back to the Stakeholders Forum that included the Departments of Higher Education and Training, Trade and Industry, South African Police Services, as well as Quality Councils and providers.

SAQA was assisting the Departments of Social Development, Public Service and Administration and other institutions like Public Administration, Leadership, and Management Academy (PALAMA), the Health Professionals Council, and advising them on how to implement RPL.

SAQA wanted to improve the postgraduate qualifications, as alluded to by the Committee. He clarified that SAQA registered qualifications, but the Council for Higher Education (CHE) assured and accredited institutions. If there were specific improvements, SAQA interacted with the CHE. A committee had been established to develop more permanent criteria to register.

SAQA had also now expanded the NQF to include the Southern African Development Community (SADC), and a SADC Regional Qualifications Framework had been approved, which would include ten level descriptors, quality descriptors and qualification types, the establishment of human resource capacity for the Education and Skills Development Unit, and advocacy work.

Mr Samuels noted the Committee’s previous concerns with vacancies, but pointed out that 24 vacancies were filled since November 2011. There were now only six vacant posts at SAQA, four of which had only recently been opened. SAQA had also instituted improved measures to counter fraud. An internal audit found that sufficient controls were in place. It was considering a move from paper to a more digital system in order to detect fraudulent qualifications. In recognition of the need to coordinate the various functions of SAQA, there was a cooperative agreement with a Dutch company on the running of pilot projects.

Discussion
Ms A Lotriet (DA) said it appeared that the SAQA budget was insufficient and this was impacting negatively on the core business. She asked if SAQA had a contingency plan should there be a shortfall on the budget.

Mr Bosman (DA) wanted to know how sustainable the financial situation at SAQA was. It was quite clear that government funding was not sufficient, meaning that SAQA had to rely on other sources of funding. The risks, as highlighted in the presentation, were a concern. He asked how the Committee could influence the budget process.

Mr Samuels replied when SAQA identified a risk, it would also come up with a specific plan to deal with the risk. He had highlighted what the risks were likely to be, and he stressed that contingency plans were in place.

Mr Albertyn added that the budget challenges were identified a year ago. The strategic plan mentioned how SAQA hoped to mitigate those challenges. The CEO and the Board had met the Minister recently, and SAQA was in the process of drafting a proposal on the funding shortfall.

Mr Albertyn also noted that there had been an increase in the number of foreign qualifications evaluated, and SAQA was exceeding its target, doing 116 applications in place of the planned 100 per day, and this was another revenue source. Most of the staff employed at the CAS programme were on contract, and when the cost of employees rose, SAQA could reduce staff in this area. He said that SAQA was sustainable, but if it did not get the additional funding it requested, this would impact upon the full effectiveness of the outcomes, particularly research and advocacy work.

Ms Lotriet asked which language was not used in the radio campaigns.

Mr Samuels replied that nothing had been done in English. Initially, the programmes used nine languages, but Afrikaans had a huge following in some rural areas. There had been discussions about including English as well.

Ms Gumbe added that there was not so much focus on English on radio, because SAQA’s written information was all in English, and a conscious decision was taken to use other languages.

Mr S Makhubele (ANC) wanted to know about the retention strategy for key personnel. Mr Makhubele said he was also worried about statement that the personnel expenditure was rising and asked what the ideal ratio was between spending on personnel and spending on programmes.

Mr Samuels replied that the number of people leaving SAQA was below the national average. SAQA offered rewards, but also tried to ensure a conducive work environment. When people complained that their workload was becoming too high, SAQA had devised a strategy to be able to reduce it.

Mr Makhubele enquired about the risk mentioned for transition, and said he had expected a smoother process, since the new Chief Executive Officer (CEO) had already worked in the organisation, and was known to stakeholders.

Mr Samuels replied the decision about a new CEO was taken by the Board in September 2011, was clear, and was communicated in time, allowing for a period of transition and handing over between past and new CEOs. However, the transition to which he had referred was the one from the SAQA Act to the NQF Act, and he assured Members that although a risk was identified, the governance was well-handled.

Mr Makhubele said there were several institutions that dealt with career advice services, and wondered to what extent they collaborated or competed. It was fashionable for institutions to claim that they would target rural areas, but they should work together to reach the greatest number possible.

Mr Samuels said there was a process, where SAQA worked with DHET, and set up an over-arching framework for careers advice in the country, and there were efforts to get the framework in place to cover all forums who offered career advice. This should be done in the next two months. He assured Members that there was cooperation.

Ms Gumbe added that there were limited resources at SAQA, and it was recognised that not everybody could be reached by SAQA alone, which was why it collaborated with FET colleges, SETAs and the National Youth Development Agency (NYDA). There Intermediaries Project aimed to forge relationships with all FET colleges, and career guidance had been provided to the colleges, to enhance the service that they in turn provided to communities. SAQA attended exhibitions and collaborated wherever it could.

Mr Makhubele said it looked as though the decision on RPL was taken hastily, without substantial research, and only now were the MPs and stakeholders trying to understand it.

Mr Samuels conceded that sometimes South Africa tended to declare policy and hope that it would work. RPL was an unfunded mandate. The experience in Holland was that although it did not have a policy on RPL, it had offered a number of incentives. The Ministerial Committee was currently looking into the barriers, especially lack of resources, and it was possible that legislation, as well as proper resourcing, was needed.

Mr Mpontshane (IFP) wanted to know if SAQA had a hand in either the closure or the setting up of the “tent” college that trained nurses in KZN.

Mr Samuels replied that people did try to set up colleges without following the proper processes. He emphasised again that the Stakeholder Forum, which included SAPS, would address any illegal colleges reported to SAQA, and ensure that they were closed. A “tent” college was opened, but was closed down.

Mr Mpontshane wanted to know how SAQA handled the issue of professionals who were partially trained outside South Africa but came into South Africa to finish their training, and how the foreign component was evaluated.

Mr Samuels replied that the professional councils played an important role. There was a clear set of mechanisms in place. He cited an example of a doctor who might have trained outside, but noted that South Africa required him to spend time working in the public service, as well as to complete an examination to ensure that he was compliant with the criteria and practices as required of the locally-trained personnel.

Mr Mpontshane said he had never seen any of the pamphlets that SAQA claimed to be distributing among communities, in his own constituency. He asked who was responsible for distributing the pamphlets, and said that perhaps MPs could assist.

Ms Gumbe replied that SAQA did its best with its limited resources, and was aware that not everybody would, for instance, receive an insert in a community newspaper. For this reason it also offered exhibitions in KwaZulu Natal. She was pleased to hear the offer from Mr Makhubele.

Mr S Mayatula (ANC) wanted to know if SAQA would receive the allocation of R44 million from government.

Mr Albertyn replied that this amount had been committed and DHET indicated it would be transferring it to SAQA.

Mr Mayatula commented that it was unfortunate that the CAS part of the presentation was not included in the documents, and asked if it could be forwarded to Members, as it was relevant to their constituency work.

Ms Gumbe said she would forward the presentation on Career Advice Services to the right channels so it could be availed to the Members.

The Chairperson said that the CHE, a few days previously, had raised concerns about attrition of apex staff because of disparities at salaries among managers. He enquired SAQA’s view on this issue.

The Chairperson enquired about the status of Mr Ishmael Molefe, who had asked for his doctorate, allegedly from University of St George in West Indies, to be accredited, so that he could be appointed as Vice-Chancellor to the Tshwane University of Technology. It appeared that this qualification was never accredited, and the institution awarding it had closed down. He thought that the degree had to be expunged and the initial endorsement revoked.

Mr Samuels replied that SAQA had revoked its certificate and this was communicated to Mr Molefe.

Mr N Bhanga (COPE) wanted to know which institution was supposed to monitor qualifications. Some universities would not readily accept qualifications from other institutions, which meant that the graduates were made to feel inferior, or were discriminated against.

Mr Samuels replied that every complaint made to SAQA would be investigated, although it was actually a matter falling in the jurisdiction of the CHE. Despite institutions having the right to determine their own admissions and institutional reputation, it was wrong for them to disregard courses from any other university that were accredited by the CHE. SAQA would gladly take up such issues, if reported.

Mr Mayatula said he was concerned by the RPL, especially that it was an unfunded mandate. This was  not a new concept, and was meant to improve the lives of those who could do the work but did not possess formal qualifications. He asked what was needed to change the status of the programme.

Mr Samuels agreed that the issue was important, which was the reason SAQA brought it to the attention of the Minister. The Ministerial Task Team was identifying the key barriers to having an efficient system. The Task Team would have to report back at the end of May. He asked that Members be patient, and said that a set of recommendations would be made in June.

The Chairperson said the Committee noted the concerns around SAQA budget, but hoped to see SAQA execute its mandate effectively, using its funds well and getting a clean audit report. This Committee was very concerned about any misuse of funds and would take stringent steps against anyone involved in misappropriation.

Other Committee Business
Draft Committee Report on visits to institutions of higher education
Mr S Radebe (ANC) proposed that more time was needed for Members to study the draft Report on the visit to institutions of higher education, before adopting it.

Mr Makhubela agreed, and suggested that it could be adopted on the following day, or the next meeting.

Mr Bosman pointed out caucuses were being held on the following day, and those present could adopt the report, with the necessary changes.

The Chairperson suggested that Members adopt the report in principle, but forward any proposals for change to the Committee Secretary. This was an old report that the Committee had not had time to deal with until now.

Adoption of Committee Minutes
The Committee adopted the minutes of 15, 22, and 29 February, 7 and 24 March, and 25 April 2012 with minor grammatical changes.

The meeting was adjourned.