REPORT OF THE PORTFOLIO COMMITTEE ON HIGHER
EDUCATION AND TRAINING ON THE ANNUAL REPORT 2013/14 OF THE NATIONAL SKILLS FUND
(NSF) AND NATIONAL SKILLS AUTHORITY (NSA), DATED 19 NOVEMBER 2014
The
Portfolio Committee on Higher Education, having met with the National Skills
Fund and National Skills Authority, reports as follows:
1. Introduction
The Portfolio
Committee convened a meeting with the NSF and NSA on 29 October 2014 to
consider their Annual Report 2013/14. This report provides a brief summary of
the presentations made by the NSF and NSA including observations and
recommendations made by members.
2. Background
The
National Skills Fund (NSF) was established in terms of section 27 of the Skills
Development Act of 1998 specifically to; fund identified projects in the
National Skills Development Strategy (NSDS) as national priorities, fund
projects related to the achievement of the purpose of the Act as the
Director-General determines and to administer the fund within the prescribed
limit as regulated from time to time. The NSF is funded primarily from 20% of
levies collected from eligible employers in terms of the Skills Development
Levies Act. This funding is used primarily to fund projects, pay the South
African Revue Service (SARS) for the costs of collecting levies from employers
and to pay for the administration cost of NSF. The Director-General of the
Department of Higher Education and Training is the accounting Authority of the
NSF and is mandated to control the Fund, keep proper records of the Fund and
prepare its annual financial statements.
The
National Skills Authority (NSA) is a statutory body that was first established
in 1999 in terms of Chapter 2 of the Skills Development Act of 1998, the
Presidential Proclamation No 44 of 2009 and, subsequent proclamations assigned
the responsibility for skills development to the Minister of Higher Education
and Training. The NSA is structured into four sub-committees that deal with
specific matters and make recommendations to the Executive Committee (EXCO) and
board. The board is the main decision-making body while EXCO takes decisions
between board meetings. The mandate of the NSA is to; review the skills
development legislative framework, develop framework to mobilise business,
government, labour and community to take full ownership of the NSDS, support
the development of a post-school education and training system that encourages
society to build a developmental state and encourage research, development an
innovation that promote beneficiation and business enterprise development. The
main role and function of the NSA is to advise the Minister and liaise with
Sector Education and Training Authorities (SETAs) on NSDS.
3. List of delegation
3.1 Attendance by Committee Members
Present: Mr D Kekana (ANC) Whip, Ms J KIlian (ANC), Ms S
Mchunu (ANC), Ms M Nkadimeng
(ANC), Ms Y Phosa (ANC) Chairperson, Mr E Siwela (ANC), Prof B Bozzoli
(DA), Mr Y Cassim (DA), Mr S Mbatha
(EFF) and Mr M Tshishonga (AGANG).
3.2 Parliamentary support staff
Mr
A Kabingesi: Committee Secretary, Ms M Modiba: Content Advisor, Ms T Majone: Committee Assistant, Mr L Komle:
Researcher and Ms N Magazi: Executive Secretary.
3.3 Department of Higher
Education and Training (DHET)
Mr Z Mvalo:
Acting Deputy Director-General Skills Development, Mr T Tredoux:
Chief Financial Officer (CFO), Mr F Toefy: Chief
Director, Ms N Rasmeni: Parliamentary Liaison Officer
Office (PLO) of the Minister, Ms P Sekgobela: PLO
Office of the DG, Mr S Mlangeni: PLO Office of the Deputy Minister and Ms B
November: Intern Office of the Deputy Minister.
3.4 National Skills Fund (NSF)
Mr E Mashabane: Director,
Mr W Minnie: Chief Financial Officer, Ms S Theron:
Director and Ms K Hlongwane: Director Provincial
Operations.
3.5 National Skills Authority (NSA)
Mr E Majadibodu:
Chairperson, Mr T Mashangoane and Ms S Mangubewa: Deputy Director.
3.6 Office of the Auditor-General South Africa
Ms N Mafahla:
Audit Supervisor, Ms C Smit: Manager
3.7 Other guests:
Mr D Stupan:
Director CNC Advocacy and Ms N Maponopono: Monitor
Parliamentary Monitoring Group (PMG).
4. Summary of presentations
4.1 National Skills Fund
Mr
W Minnie: CFO led the presentation which highlighted the following key issues:
The
main highlight of the entity for the period under review
include the disbursement of R3.1 billion towards skills development and
for the implementation of NSDS goals. Of the total R3.1 billion, R2.5 billion
was allocated for training of 77 000 learners, R528 million was allocated for
key skills infrastructure development and R25 million for establishing a
credible skills planning mechanism and strengthening the PSET system.
In
relation to programme 1, Skills Development Funding, the total targets for the period under review were 21 of which 12 were achieved, 6
partially achieved and 3 not achieved. The key achievements for this programme
include; R495 million for 25 850 TVET college learners, R1.2 billion for 29 136
undergraduate bursaries and 1 026 postgraduate bursaries, R101 million for
rural development projects benefiting 3 156 learners, R317 million for national
priority projects benefiting 8 178 learners, R106 million for expansion of
medical and veterinary facilities at University of Pretoria, R199 million for
TVET college campuses and R92 million for strengthening of TVET college sector.
In
relation to programme 2, NSF Operations, the entity experienced delays in appointment
of a service provider to assist the entity in establishing itself as a fully
compliant schedule 3A Public Entity. The NSF received and unqualified audit
with matters of emphasis from the Auditor-General.
In
relation to its financial performance for the period under review, the entity
had a total revenue of R4 billion and the total
expenses amounted to R3.2 billion. The assets of the entity include; Public
Investment Corporation (PIC) investments of R5.7 billion, funds in the bank
R1.1 billion and funds advanced to skills development projects of R2.3 billion.
The current commitments of the entity stood at R11.3 billion, current available
reserves R8.4 billion and over commitment of R2.8 billion.
4.2 National Skills
Authority
Mr
T Mashangoane: Director led the presentation which
highlighted the following key issues:
In
relation to its progress and achievements; the NSA advised the Minister on NSDS
III, conducted the National Skills Conference in 2011 and 2013, advised the
Minister on reconfiguration of the SETA landscape, advised the Minister on
legislation review and SETA regulations, two investigations were conducted on
scope creep by Service SETA and allegations of mismanagement at Chemical
Industries SETA.
In
relation to administration and management support, the NSA secretariat is
responsible for supporting the work of the entity’s committees and managing
day-to-day operations. In strengthening the NSA, the entity agreed with the
Department to have a dedicated allocation for the use of NSA activities and the
new NSA board is scheduled for orientation and capacity building workshop in
November 2014. The urgent focus areas of the NSA include; SETA panel review
process, appointment of SETA Council members and dealing with recommendations
of the White Paper on Post-School Education and Training on NSA.
In
relation to its budget and funding, the NSA receives a budget allocation from
the DHET through voted funds and in the main, these funds are for
administration activities such as personnel expenses for staff and
administration and logistics. The NSA Secretariat is housed within the Skills
Development branch of the Department. Other NSA activities such as the skills
conference, provincial consultations are funded from the NSF allocation. For
the period under review, compensation of employees was R2.7 billion, good and
services R1.7 billion and expenditure R7.4 billion.
5. Observations
The
following formed part of the observations:
5.1
National Skills Fund
·
The Portfolio Committee
commended the entity’s key achievement in funding the national skills
development priorities as identified in the NSDS III, National Growth Path,
Industrial Policy Action Plan (IPAP) 2013/14-2015/16, and Medium Term Strategic
Framework 2009-2014. The funding of infrastructure development for the
post-school education and training institutions to expand access and success to
education and training was also commended, though the delay in the building of
the TVET College campuses was not well received.
·
The Portfolio Committee was
seriously concerned that 60% of vacancies at the entity were not yet filled and
this inadequate capacity might impact on project monitoring and evaluation
given the increase in the number of projects that have committed funds.
·
It was raised with concern that
the Annual Report 2013/14 of the entity was inaccurate in relation to its
financial statements and the targets for the period under review were
unreliable and vague.
·
Inaccurate and untimely
financial and performance reporting resulting in non-compliance with laws and
regulations was highlighted as serious concern that need to be addressed by the
entity.
·
The Portfolio Committee
noted with concern that the NSF is not a legal persona.
·
It was raised with concern
that though the Skills Development Act provided for the discretion of the
Minister and the Director-General on funding of some projects, there was a need
for objectivity.
·
The Portfolio Committee was
concerned that though the NSF was listed as a Schedule 3A Public Entity in
2012, it relied on the Department’s supply chain management policies,
Information and Communication Technology (ICT) systems, Human Resource Policies
and other policies.
·
In relation to achievement
of targets, the Portfolio Committee was concerned with the under-achievement in
the targets set for the period under review.
·
Given the financial reserves
that are managed by the entity, the Portfolio Committee was concerned with inadequate
record and information management system for financial and performance
reporting.
·
The Portfolio Committee was
of the view that the entity should contribute more in funding needy students in
universities and Technical and Vocational Education and Training (TVET) Colleges
to supplement the current National Student Financial Aid Scheme (NSFAS) budget
shortfall.
·
It was noted with concern
that though the NSF operated as a disbursement agency, the tracking of learners
or beneficiaries for its projects was solely outsourced to the institutions
which received the NSF grants. Furthermore, NSF could not account on the
progression of the beneficiaries or learners funded.
·
The Portfolio Committee
commended the Department for the new SETA grant regulations which would allow
unspent SETA surpluses to be re-directed to the NSF for other priority
projects.
5.2
National Skills Authority
·
The Portfolio Committee was
seriously concerned with the delays in the appointment of the new board of the
NSA by the Minister.
·
It was noted with concern
that the NSA did not have adequate financial reporting though it received funds
from the NSF and Department.
6. Conclusion
The
meeting with the NSF and NSA provided members with insight into the activities
and functions of these entities. The NSF is an important role player in the
funding of skills development projects and other priorities that are meant to
develop and uplift the livelihoods of the country’s citizens. The Fund’s
disbursement towards skills development of R3.1 billion during the year under
review was commendable and it benefited 77 000 learners for training. The
listing of the NSF as a public entity presented the organisation with
challenges since it was a directorate located within DHET. The entity did not
have adequate capacity at the time of its listing to operate independently from
the DHET and a service provider had to be appointed to assist with setting up
of the organisation. Unfortunately, there were delays in the appointment of the
service provider and this impacted negatively on achievements of targets
planned. Nevertheless, the entity reported that it has a transformation project
called “Siyaphambili”
which will be completed by 2016. Through this project, the entity has
identified action plans to deal with all its challenges and to develop its way
forward.
In
relation to the NSA, the Portfolio Committee commended the Authority for its
continued advice to the Minister in particularly on skills development matters
and SETAs. The Authority is still a directorate in the Skills Development Branch
of the DHET although it has a chairperson and the board. The Skills Development
Act does not compel the Authority to report on its financial statement
separately and this was a concern that was noted by the Portfolio Committee.
Furthermore, the Act does not make provision for the Authority to be
established as a public entity and its advisory role is constrained by its
dependence on the Department for all its activities.
7. Recommendations:
The
Portfolio Committee recommends to the Minister to consider the following:
7.1
National Skills Fund
·
The delinking process of the
NSF from the DHET should be fast tracked;
·
The Minister should consider
the review of the Skills Development Act to make the NSF a legal persona;
·
The entity should develop an
action plan to respond to all the findings raised by the AG in the 2013/14
Annual Report;
·
The filling of vacant posts
should be prioritised to improve monitoring and evaluation of skills development
projects;
·
Reprioritisation of funds
from unspent historically accumulated reserves and the uncommitted funds from
SETAs’ discretionary funds should be facilitated to cover the NSFAS budget
shortfall for higher education institutions, in particular the student historic
debt;
·
The entity should develop
clear performance indicators to track and report on the success of learners in
the funded skills development projects; and
·
The Department should fast
track the building of the TVET College campuses.
7.2
National Skills Authority
·
The research capacity of the
Authority should be expanded.
Report
to be considered.