Global Convention on the Recognition of Qualifications concerning Higher Education

Meeting report

The Chairperson officially opened the meeting and welcomed all. The Committee was taken through the meeting agenda and the agenda was adopted. Apologies were acknowledged. The Chairperson handed over to the delegation from the Department of Higher Education and Training to proceed with the presentation.

Briefing by the Department of Higher Education and Training: The Global Convention on the Recognition of Qualifications concerning Higher Education

In his opening remarks, Dr Nkosinathi Sishi, Director-General, Department of Higher Education and Training (DHET), said that the Global Convention on the Recognition of Qualifications concerning Higher Education is an important opportunity for South Africa. He then took the Committee through the presentation. The purpose of the briefing was to provide an overview of the timeline, objectives, principles, and obligations associated with the Global Convention, and to seek support from the Select Committee for the deposit of an instrument of ratification with the United Nations Educational, Scientific and Cultural Organisation (UNESCO) through Parliament.

He recounted that the development of the Global Convention began in 2012 when UNESCO initiated the formal process. In 2016, a Drafting Committee was established, leading to the adoption of the Global Convention in November 2019 by all 193 Member States at the 40th Session of the UNESCO General Conference. The ratification process in South Africa involved consultation workshops, with Cabinet approval obtained on 19 October 2022. The parliamentary process is currently in progress.

The Global Convention, the first United Nations higher education treaty with a global scope, aims to facilitate the movement of students, academics, lecturers, and researchers worldwide. It provides a global platform for collaboration among national authorities to improve tools and practices for the recognition of higher qualifications. South Africa supports the objectives and principles of the Global Convention, aligning with its commitment to international cooperation, mobility, and the equitable recognition of qualifications.

The strategic focus of the Convention in South Africa is in harmony with international and regional policies, including the United Nations 2030 Agenda, the Addis Convention, the SADC Protocol on Education and Training, and the National Development Plan. South Africa emphasises the importance of fostering trust, promoting quality assurance, and ensuring inclusive access to higher education through the recognition of qualifications.

The implementation of the Global Convention in South Africa involves well-established mechanisms and tools for the recognition of foreign qualifications, including mutual recognition agreements, evaluation services, and verification processes. The country also has policies in place to support international students, such as the Policy Framework for Internationalisation of Higher Education.

As of 15 May 2023, the Global Convention has received 22 ratifications and entered into force on 05 March 2023. With its advanced national qualification system, South Africa plays a proactive role in recognising foreign qualifications and promoting academic mobility. Looking forward, the Department plans to continue consultations with stakeholders, assess the readiness for implementation, undergo legal processes, and navigate the parliamentary approval process. The final steps involve certification by the Department of International Relations and Cooperation (DIRCO) and the submission of the instrument of ratification to UNESCO through Parliament.

In conclusion, it was recommended that the Select Committee take note of the Global Convention and support the deposit of an instrument of ratification, recognising the significance of international cooperation in higher education and the promotion of transparent and equitable recognition practices.

See attached for full presentation

Discussion
The Chairperson welcomed the presentation, and the objectives of the Convention were welcomed. He wanted to know what would happen if South Africa somewhat found itself contravening the Convention in one way or the other. He then asked the Members of the Committee to engage with the presentation.

Ms D Christians (DA, Northern Cape) sought clarity regarding the involvement of the South African Qualifications Authority (SAQA) and the Department of Home Affairs in the preparations of the Global Convention, including the cost analysis of their involvement. Regarding the implementation changes of the Quality Councils, what specific changes are needed at SAQA, Quality Council for Trades and Occupations (QCTO), Umalusi, and the Council of Higher Education (CHE) to meet the implementation needs of the Global Convention including the implementation timelines for this?

Mr M Bara (DA, Gauteng) thanked the Department for the presentation. He asked the Department to elaborate on the progress and substance of the draft Implementation Plan mentioned in the presentation so that the Committee may know how far the Plan is and also get a sense of what it entails.

With the expansion of countries that are within the BRICS network, how has the DHET taken advantage of the potential opportunities for cooperation in line with the Convention created by BRICS? How is the DHET involving SAQA, QCTO, Umalusi and the CHE to take advantage of the potential opportunities for cooperation in line with the Convention created by BRICS?

Responses
Dr Sishi thanked the Committee Members for the questions. He started by affirming that there is a component of mutual recognition of qualifications across BRICS countries to ensure that the agreements within BRICS are also recognised within the global conventions. There is no conflict between the BRICS conventions and the global conventions South Africa is a part of.
The global conventions are crucial, and they allow a level of accountability in the implementation of intercountry agreements. This is so that there are mechanisms to ensure accountability in cases where there are deviations. The National Qualifications Act has provisions including frameworks that provide for the evaluation and advisory services in respect of foreign qualifications. Within these are policies and criteria for evaluating foreign qualifications within the National Qualifications Framework (NQF). There is also the Foreign Qualifications Evaluation Appeal Policy which protects individuals whereby the decisions of authorities are unfair, then the policy is activated to deal with such. Also, the Foreign Qualifications Evaluation Revocation Policy further protects individuals so that there is a level of accountability if authorities are found to be non-compliant with global agreements and conventions.

Dr Sishi remarked that the implementation timeframes are crucial in helping Parliament be confident upon Cabinet approval. After the Committee briefing, the Department will seek the National Council of Provinces (NCOP) approval. Thereafter, DIRCO will submit the instrument of ratification and approval to both Houses of Parliament, and a legal opinion will be provided where necessary. Upon certification of the instrument of ratification by DIRCO and DHET, the instrument will be deposited the instrument to UNESCO. The DHET expects this process to be finalised in the next 12 months, and the Department is aware of its responsibility to keep briefing the Parliament about the developments in these processes.

The Implementation Plan has been drafted through the national implementation structures comprising all the Quality Councils. Therefore, the Implementation Plan is a product of SAQA, QCTO, Umalusi, and CHE. The Implementation Plan will also include a communication and visibility strategy aligned with the Addis Implementation Plan.

It was mentioned that South Africa is underway in the implementation of the Addis Convention, and there is an implementation plan which the DHET, SAQA, and the Quality Councils, including the institutions that are implementing. Notably, the Global Convention does not supersede any regional conventions or bilateral or multilateral recognition agreements in place but complements the UNESCO regional conventions fulfilled through bilateral agreements.

Consideration and Adoption of Reports
The Committee adopted the report on the Global Convention on the Recognition of Qualifications concerning Higher Education, tabled in terms of section 231(2) of the Constitution, 1996, and the Explanatory Memorandum to the Global Convention on the Recognition of Qualifications concerning Higher Education, dated 06 December 2023.

The Committee also adopted the report on the 2003 UNESCO Convention for the Safeguarding of Intangible Cultural Heritage, tabled in terms of section 231(2) of the Constitution, 1996, and the Explanatory Memorandum to the 2003 UNESCO Convention for the Safeguarding of Intangible Cultural Heritage, dated 06 December 2023.

The minutes of 08 November 2023 were adopted.

The Committee adopted the annual report on its activities.

The Chairperson closed the Committee for the work done throughout the year and wished everyone a happy holiday season.

Members of the Committee also shared their remarks and well wishes.

The meeting was adjourned.