South African Qualifications Authority (SAQA) and Council on Higher Education (CHE) Annual Reports 2010/11

Meeting report

South African Qualifications Authority (SAQA): Building the NQF - Annual Report 2010/11 Presentation
Overview
Mr Samuel Isaacs, Chief Executive Officer (CEO), South African Qualifications Authority (SAQA) presented an overview to the presentation. SAQA was in transition as he would retire in February 2012. His successor, Mr Joe Samuels, the current Deputy Executive Officer was appointed by the board. He would resume office from 01 March 2012. The transition would therefore be smooth and SAQA would be in good hands both at the levels of governance and administration. 

Positioning the National Qualifications Framework (NQF) and South African Qualifications Authority (SAQA)
Essential Role of the NQF
The National Qualifications Framework (NQF) was the key mechanism in society to enable communication; coordination and collaboration across education, training, development and work. It was not just a register for qualifications but was meant to enable various role players to work in new and innovative ways. This could be seen in the report. The implementation of the NQF was done through diversity; environmental sustainability and social justice. This was present in all the work that it did. SAQA was the oversight body of the NQF; it was the custodian of the values of the NQF, engaged on high-level strategic issues and developed NQF policy. The National Career Advice Service was an example of a strategic issue. This was the first of its kind in South Africa. The career advice was made accessible using a helpline and was one example of strategic intervention.

Change and Continuity
Mr Joe Samuels, Deputy Executive Officer (EO) SAQA presented the change and management of the transition within SAQA. New responsibilities had been assigned to SAQA due to the NQF Act which had been implemented on the 1 June 2009 and a number of strategic imperatives had been approved to steer the organisation to fulfil its new role. Five Strategic Imperatives were discussed. These included developing policies and criteria, assisting the Quality Council for Trades and Organisations (QCTO) and work in poor communities, building research and development capacity. SAQA also created a conducive climate for effectiveness through advocacy and excellent service delivery to the public in the new NQF environment as defined by the new NQF Act. Draft policies and criteria had been developed to recognise professional bodies and professional designation as well as a national road show. The road show was embarked upon to inform various professional bodies about the new draft policy and criteria. A pilot project would be run until the end of 2012 after which the new policy and criteria would kick in April 2012. All the Quality Councils (QCs) had agreed to the level descriptors.

Continuity
The bedrock functions and services for 2011 were maintained and the level of excellence continued. The functions and services were registration and recognition, foreign qualifications and evaluation and advisory services, research, communication and information, human resources and information technology and finance and administration. Funds were tightly managed and the 14th unqualified audit report was achieved. Governance was discussed as Sustainability matters, Communication with stakeholders and improving systems.

Annual Financial Report
Mr Mark Albertyn, Chief Financial Officer (CFO), SAQA, discussed the annual financial report. SAQA had achieved its 14th unqualified audit report from the Auditor General. Funds had been managed responsibly, efficiently and effectively. 83, 7% of the revised budget for 2010/11 had been spent and an additional R5, 15m had been approved on the 13 January 2011. There had been increased efficiency in the financial management and it was in line with the National Treasury and budget cuts.

Issues raised during SAQA’s previous presentation to the Portfolio Committee
Mr Samuels discussed the issues raised at the last presentation to the Portfolio Committee. These were to refine and facilitate the implementation of national Recognition of Prior Learning (RPL) policy. This also included the process of finalisation of NQF policy, RPL research, and assisting the NQF and Career Advice Helpline. RPL working teams were established, a letter of advice was submitted to the Minister to establish a National Ministerial RPL task team.

Discussion
The Chairperson congratulated SAQA on the unqualified audit and gave Members an opportunity to engage with SAQA.
 
Mr A Mpontshane (ANC) asked what SAQA was doing in the rural areas under recognition and registration of qualifications, e.g. if a college in Gauteng was unregistered, how did this occur? Secondly, the disputed qualifications of the professor in Tshwane were recognised by SAQA. Finally, he requested a breakdown of the components of big figures in the budget.

Mr A van der Westhuizen,(DA) asked what SAQA’s role was in marketing publications and how well known the new qualifications were. was the regional and international co-operation growing? He asked for an elaborated explanation on the relationship and services between Sector Education and Training Authorities (SETAs) and SAQA.

Dr J Kloppers-Lourens (DA) asked what damage had been done with the image of SAQA. Why did SAQA approve the qualifications of Professor Johnny Molefe at Tshwane University of Technology (TUT)? What happened to the official involved and how could the Members be assured that a mistake like this would not be repeated. Were there any other cases like this? 

Mr Samuels replied that in respect to the approval of Prof Molefe’s qualifications that they had been asked to evaluate the document in March 2007. Subsequently a certificate was issued. Later, a query was received and they could not establish where the institution was situated. In May 2007, the certificate was revoked. The person in TUT continued to use the certificate and this was a credibility issue for SAQA. The individual claimed he had not received the revocation which had been sent via registered post.

Mr C Moni (ANC) congratulated SAQA on its unqualified audit and asked how far the institution was with the realisation of its mandate. What was lifelong learning, was it an accumulation of learning? What did it mean?  He asked how far the delayed appointments for February 2012 were and why there was a delay. What was the advantage to poor or rural students?

Mr Samuels replied that South Africa had been one of five countries in the world with NQF, currently the whole of Europe of organised. South Africa at a conceptual edge lacks implementation and capacity. There were standards of excellence in medicine, mining, etc, but the challenge was that our quality was not across the board. The Council on Higher Education was widely regarded, similarly Umalusi, however the challenge was with quality control with T and Q, which had challenges with change. There were legal issues with the QCTO as the chairperson there resigned. The establishment of a QCTO was very difficult, a green paper was prepared which had three QC’s or one chamber with three.  

 Mr G Radebe (ANC) congratulated SAQA on its unqualified audit. He commented that Mr Samuels had presented good unqualified reports. He acknowledged the good work that they were doing including being updated with environmental aspects.  He asked what happened to the information technology (IT) equipment which SAQA was donating. He noted that a register should be in place, to show where the donations were sent to. He asked where these donations were sent to.

Ms W Nelson (ANC) commented that she was heartened to hear that learners had been taken in for learnerships. She asked what the life span of the task team would be and the timeframes before the task team would produce a document. She commented that RPL was in partnership with the University of the Western Cape (UWC) but asked if anything had been done with regard to producing skills. How many calls came in with respect to Career Advice Services (CAS) and from which province? How many other radio stations would be targeted? Were there specific listening times on the SABC and did SAQA do any advertising around how to find accredited courses or colleges? She requested brochures for the Members' constituency offices.

Mr Samuels replied that previously there had been a RPL for skills. It had been funded by the European Union (EU), eg bricklayers, were trained and those who had work experience but no formal qualifications. However, when the funding from the EU stopped, the project also ended. In respect to non-accredited courses, Mr Samuels replied that SAQA did advertising but some people were ignorant and desperate to register at an institution especially if they had applied at registered institutions and had been unsuccessful. This was particularly common in Gauteng and Limpopo where one would find collusion between the consumer and the provider.  It was also worth noting that the registration of institutions was a provincial mandate. 

Mr S Makhubele (ANC) asked how SAQA reached out to people in deep rural areas as not everyone there would have access to media. The QCTO was not fully fledged - why was there a rush to hand over? He asked why SAQA was having trouble recruiting people with disability. What was the policy around RPL?

 Mr Samuels replied that SAQA did not have a budget available for four-by-four vehicles, etc. to venture into deep rural areas. How would one make services available in the rural areas? The South African Broadcasting Corporation (SABC) had not come on board with television broadcasting as the cost was out of SAQA’s price range. The radio advertising still cost SAQA a couple of million rand. Brochures could be delivered to Members who could make them available to constituents.

The Chairperson asked why there was a delay in filling funded posts as there had been a direct mandate from the President that all funded vacant posts should be filled. She asked how SAQA and the CHE accredited qualifications. How would the problem of unrecognised qualifications be solved and what was the fate of the learner?

Mr Samuels replied that SAQA outsourced or hired on a short term basis if they needed some-one. There were cases when they tried to conserve the budget.

The Chairperson urged Members to allow SAQA to respond to the remaining questions via written responses as there were other pressing matters and another presentation from the CHE.

Council on Higher Education (CHE) Annual Report 2010-2011
Prof Letitia Moja presented highlights within the Council on Higher Education (CHE) on behalf of the Chairperson, CHE. She apologised on behalf of the Chairperson who was incapacitated due to minor surgery. The Auditor-General (AG) had three findings - that there was irregular expenditure with building renovations undertaken. This was condoned by Council following an investigation that indicated no deliberate wrong doing or self enrichment had occurred. The new CEO ,Mr Ahmed Essop, had been appointed since May 2010. The council had nine members whose term was ending but they had all been replaced, seven of these were new appointments and two were reappointments. The total number of council members was 21. The Higher Education Quality Council (HEQC) did accreditations and audit of institutions. The first cycle of institutional audits had been completed. The process of drafting new guidelines and framework for the next cycle was underway which would focus more on teaching and learning. The Chairperson had earlier alluded to presentations on qualifications and curriculum which look similar. The challenges might be on how the learners were taught and this was the reason why the framework for the next institutional audit was going to focus on how the curriculum was unpacked in student-teacher learning experiences. This framework was in advanced stages. The new cycle of audits would hopefully be started within the new framework.   The CHE had also received an unqualified audit; however critical issues had been raised by the AG and amongst these issues were the acquisition and renovation of the new CHE building which Mr Essop would elaborate on.

Mr Essop, CEO, CHE, presented the Annual Report. There had been much transition within CHE as had been alluded to by Prof Moja. There had been many senior personnel resigning and others replacing them during the course of the year. The CHE had a new structure which was in line with the new mandate as Quality Control was adopted in December 2010. In terms of staffing issues, all senior posts were filled except for one. A large part of identified organisational challenges were addressed in 2010/11. Comprehensive internal audits were completed which identified a whole range of compliance issues which linked back to the issue of the new CHE building. The external audit conducted by the AG confirmed the issues in terms of organisational weaknesses raised by the internal audit. The issues raised were the outdated Supply Chain Management processes, Public Financial Management (PFM) processes which were not being used etc. The Exco and the audit committee paid particular attention to the outcomes of the audit process. In June 2011, revised policies were put in place, such as staff development processes which had not been in place before. A budget had been allocated to staff development. The CHE was addressing a range of problems in the internal and external audit.

The two key challenges were a lack of systemic monitoring in policy impact studies and Quality Assurance (QA) was not used as a steering tool to complement planning and funding. There was a request at the end of March 2011 for the establishment of a Central Applications Office and the establishment of a community service scheme for graduates. The role of the CHE was to strengthen teaching and learning. A national workshop was facilitated on the establishment of a National Stakeholders Forum. There was an indicator project initiated in January 2010 to monitor the state of higher education. Institutional audits had been completed; the first cycle had occurred from 2005/11. Two improvement plans had been submitted and a draft University of KwaZulu-Natal (UKZN) audit report withdrawn. 248 new programmes were assessed and 130 private provider programmes were evaluated for re-accreditation.

In terms of Financial Statements the AG had three findings - that there was irregular expenditure with building renovations undertaken. This was condoned by Council following an investigation that indicated no deliberate wrong doing or self enrichment had occurred. There was fruitless and wasteful expenditure of R5 905.75 in respect of interest and penalties for late payment of taxes and the late and incorrect submission of financial statements. The CHE had disagreed with the AG based on the fact that the CHE had followed the same process for the last ten years. The norm that they had followed was now a finding.

Discussion
Dr Kloppers-Lourens asked when they picked up the problems of the research report and why it was not picked up earlier. Were you going to prescribe the LLB curriculum to universities and how did this impact on their freedom? 

Mr Essop replied that it had only been one report that had not been released and that it was not of bad quality, but rather the analysis had not been useful. The report was not wasted. The CHE did not prescribe curriculum to any university, the standards of an Bachelor of Laws (LLB) degree should be same across all of the 17 institutions in South Africa. The integrity of the degree would be ensured if all institutions had appropriate credit hours assigned for subjects in the degree course. The standards were developed by the peer review mechanism that also assesses the programme. 

Mr Mpontshane asked what advice the CHE had given to the Minister regarding mergers of universities, e.g. Walter Sisulu University had argued that since their merger they had not received sufficient funding from the Department. The universities determined their own salaries, especially those of vice chancellors, what was your take on this? The previously called bush universities continued to be ranked on a lower rung, whether deserved or undeserved - what had the CHE’s efforts been to improve such perceptions?

Mr Essop replied that the Minister had required advice from the University of Cape Town (UCT). He commented that he was also involved and instrumental in the merging of the universities and would therefore not be able to give an objective answer.

Mr Van der Westhuizen thanked Mr Essop for being frank about the organisations challenges. He noted that it seemed to be a very difficult environment where people quite easily challenged the outputs of the organisation. He commented that there did not seem to be any benefits derived from the reports by the CHE as these reports were not released despite huge sums of money being spent on it. Were there any measures in place to curb this type of spending, where for example the report format, research etc was agreed upon beforehand?  As to the issue around the investigation of the Audit report  - was it done internally or was it verified by an external body?   

Mr Makhubele congratulated the CHE on an unqualified audit report. He asked if the publications of the CHE had informed any policy approaches, was there any benefit to it in practical terms? Why was the report from the UKZN withdrawn and how do these issues get tackled? There were 248 programs assessed and how many applications were there in total? There was a need for elaboration on the irregular expenditure and renovations, etc. The CHE did not appoint a CFO until this year and at a lower rate.

Mr Essop replied that that he would send a written response to Mr Makhubele on the rest of his questions. 

Ms Nelson asked what synergy needed to be in place for data to be made available. Were there any checks and balances in place to ensure that the non-accredited courses would not be offered at universities?

The Chairperson asked how the Central Applications Office would work. The application fees to university were expensive and most students would not be able to afford this. was there any measure in place to deal with this? was there any way to standardise on the quality of lecturers? The Chairperson asked the Department of Higher Education and Training (DHET) to assist with answering questions.

Professor Magda Foure-Malherbe, Vice-Rector: Teaching, Stellenbosch University, Council Member, CHE, noted that it was difficult to find a new CEO as it was a crucial position to advise the MHET. Some issues stemmed from the transitional phases.

Mr Theuns Tredoux, CFO, DHET, said that he would send a proper written report in response to some of the Members questions.

The Chairperson thanked the CHE, DHET and SAQA and wished them all the best of luck.

The meeting was adjourned.