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DEPARTMENT OF HIGHER EDUCATION AND TRAINING Presentation to: Standing Committee on Appropriations 2015 Appropriation Bill 26 May 2015
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1.Strategic Overview 2.Addressing the matters requested by the Appropriations Committee including: An overall assessment of 2015 Appropriation Bill Ensuring all funded entities effectively spend transferred funds and performance targets are met Ensuring all students succeed in higher education, drop out rates are minimised and completion rates increased Ensuring budget alignment with broader sector regarding coordination of Outcome 5 Significant projects and risks Efforts to leverage partnerships for additional resources for higher education sector Implementation of cost containment measures and cost effective service delivery models 2 Presentation Outline
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Strategic Overview 3 The Department of Higher Education and Training is responsible for all post-school education and training in the country It is the coordinating Department for Outcome 5 of government’s 14 outcomes “A skilled and capable workforce to support an inclusive growth path” In 2014, the Department released a White Paper for Post- School Education and Training (PSET) The White Paper has created a framework that defines the Department’s vision for PSET, its focus and priorities The Strategic Plan covers the period 2015 to 2020 and is informed by the vision espoused in the National Development Plan, 2014 - 2019 Medium Term Strategic Framework (MTSF) and imperatives of the White Paper
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Vision Leading Post-School Education and Training for growth Mission To provide national strategic leadership in support of an integrated Post-School Education and Training system towards improved quality of life of the South African citizenry Strategic Overview 4
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Strategic Goal 1: To provide a sound Post-School Education and Training legislative framework Strategic Goal 2: To provide Post-School Education and Training services Strategic Goal 3: To provide Post-School Education and Training capacity Strategic Goal 4: To facilitate a strong stakeholder network Strategic Goal 5: To ensure continuous business excellence within the Department of Higher Education and Training Five Year Strategic Goals 5
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In line with the strategic goals identified, we will: Develop and review legislative frameworks aimed at steering the Post-School Education and Training system in line with the imperatives of the White Paper Strive to expand and improve the quality of Post-School Education and Training by introducing appropriate teaching and learning support interventions for Universities and Technical and Vocational Education and Training (TVET) colleges, as well as artisan development Establish, develop and expand a new institutional type – Community Colleges – primarily to promote education and training opportunities for those young people who cannot access the universities or TVET colleges Five Year Strategic Goals 6
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Improve the capacity of the system through infrastructure development for technical and vocational education and training Maintain good stakeholder relations in support of an effective Post-School Education and Training system Ensure good corporate governance including efficient resource management within the Department and its entities. Five Year Strategic Goals 7
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To substantially expand access to education and training for youth and adults, regardless of whether or not they have completed school To improve the alignment between universities, TVET colleges, Sector Education and Training Authorities (SETAs), South African Qualifications Authority (SAQA) and quality councils in an effort to improve student and learner mobility across institutions and qualifications To expand the availability of opportunities for workplace training for students in colleges and universities and to expand other forms of workplace training such as learnerships and apprenticeships Focus Areas in the Next Five Years 8
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To ensure that our Post-School Education and Training system prioritises funding of the marginalised, enabling them to access post-school institutions and fulfill dreams of careers thought to be unrealisable To further develop post-graduate studies to ensure the expansion of the academic profession and development of high level knowledge and skills To diversify provision based on open learning principles to improve learning opportunities across the Post-School Education and Training sector by expanding and strengthening the post-school distance education landscape Focus Areas in the Next Five Years 9
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To integrate disability into the broader policy arena by introducing a national policy to guide education and training institutions in the post-school domain To integrate Recognition of Prior Learning (RPL) into the post-school education and training system Focus Areas in the Next Five Years 10
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The Department’s budget structure is based on its organisational structure and consists of five programmes that represent Branches in the Department. The programmes are as follows: 1)Administration Provide strategic leadership, management and support services to the Department 2) Human Resource Development, Planning and Monitoring Coordination Provide strategic direction in the development, implementation and monitoring of Departmental policies and the Human Resource Development Strategy of South Africa Overall Assessment of 2015 Appropriation Bill 11
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3) University Education Develops and coordinates policy and regulatory frameworks for an effective and efficient university education system. The Branch also provides financial support to universities, the NSFAS and national institutes for higher education 4) Vocational and Continuing Education and Training Plans, develops, monitors, maintains and evaluates national policy, programmes, assessment practices and systems for vocational and continuing education and training including for TVET colleges and post-literacy AET 5) Skills Development Promotes and monitors the national skills development strategy. Develops a skills development policy and regulatory framework for an effective skills development system Overall Assessment of 2015 Appropriation Bill 12
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The budget also includes “direct charges” which are amounts reflected that constitute a direct commitment from the National Revenue Fund in terms of specific legislative requirements and are not defined as Voted funds such as for the above five programmes The “direct charge” for the Department is the skills levy revenue collected by the South African Revenue Service (SARS) for the Sector Education and Training Authorities (SETAs) and the National Skills Fund (NSF) The direct charges increases at an annual average rate of 9.6% from R13.2 billion in 2014/15 to R17.4 billion in 2017/18 and amounts to R14.690 billion for 2015/16 Overall Assessment of 2015 Appropriation Bill 13
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For the 2015 MTEF, the Department’s budget (excluding direct charges) increases at an annual average rate of 5.9%, from R39.0 billion in 2014/15 to R46.3 billion in 2017/18 The amount of R41.8 billion for 2015/16 is an increase of R2.9 billion (nominal increase of 7.3%) on the 2014/15 allocation This allocation includes a budget cut for cost containment to the amount of R24.5 million and additional funding from the provincial equitable share for the TVET and AET function shift to the amount of R2.2 billion Overall Assessment of 2015 Appropriation Bill 14
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The Department’s budget is dominated by Programme 3: University Education, which represents 78.5% of the budget in 2015/16. As a result, transfer payments also dominate the budget in terms of the economic classification of expenditure Normal Departmental services represents 18.67% of the budget when we exclude university transfers, transfers to public entities, Technical and Vocational Education and Training colleges, Adult Education and Training centres, other organisations and earmarked funds Of this, compensation of employees amounts to R7 308.192 million (17.5%) for 2015/16. Remaining funds for operations amounts to R505.310 million in 2015/16 which represents only 1.21% of the budget Overall Assessment of 2015 Appropriation Bill 15
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Programme Adjusted Appropriation Medium-Term Expenditure Estimate R’000 2014/152015/162016/172017/18 Administration285 674318 330 952347 528 Human Resource Development, Planning and Monitoring Coordination 54 72654 84357 78660 728 University Education30 443 74832 844 32534 602 90936 342 892 Vocational and Continuing Education and Training 8 098 0088 515 7708 985 8809 439 257 Skills Development106 300110 699116 719126 615 Subtotal38 988 45641 843 955 44 094 24646 317 020 Direct charge against the National Revenue Fund 13 200 00014 690 00016 140 00017 400 000 Total52 188 45656 533 95560 234 24663 717 020 Overall Assessment of 2015 Appropriation Bill 16
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Economic classification Adjusted Appropriation Medium-Term Expenditure Estimate R’000 2014/152015/162016/172017/18 Compensation of Employees 7 009 0167 308 1927 732 5098 137 676 Goods and Services301 877492 984501 224513 933 Transfers and subsidies31 672 50934 030 45335 852 82937 658 183 National Student Financial Aid Scheme6 138 8326 448 5516 810 6747 151 208 Public entities (SAQA, CHE, QCTO)120 864117 424120 961139 806 SETA transfers (DHET’s contribution)17313 98114 76715 500 Universities24 155 09326 243 22727 634 11829 015 824 TVET Colleges (Subsidies)1 148 0721 140 9451 202 4701 262 514 Adult Education and Training Centres055 40858 34461 261 Higher Education South Africa for HEAIDS project7 4207 7618 1728 581 Commonwealth of Learning and IBSA2 9153 1563 3233 489 Other (Leave gratuity)99 140--- Payments for capital assets5 05412 3267 6847 228 Subtotal38 988 45641 843 955 44 094 24646 317 020 Direct charge against the National Revenue Fund13 200 00014 690 00016 140 00017 400 000 Total52 188 45656 533 95560 234 24663 717 020 17 Overall Assessment of 2015 Appropriation Bill
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The Department acknowledges the current fiscal constraints of Government This has numerous challenges in itself, but also has a serious impact on the service delivery requirements of the Department The Department implemented the cost containment regulations by National Treasury Additional cost containment measures have also been approved by the Director-General in order to ensure that key service delivery receives priority The Department is also looking into ways in which effectiveness could be improved to reduce costs but meeting the same objective Key Budget Pressures Facing the Department 18
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The current budget constraints makes it difficult for the Department to attain the growth requirements within the post-school education system in terms of enrolments, infrastructure development (including student accommodation), increased operations and student support services A key shortfall is student financial assistance through NSFAS Limitations are placed on Departmental operations due to the capping of compensation of employees and the inability to roll out the new proposed staff establishment and regional presence due to the finalisation of the function shift of the TVET and AET Sectors. This include key IT expenditure for the required connectivity of all staff Key Budget Pressures Facing the Department 19
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Institutional monitoring and evaluation is limited to most critical areas Reliance on NSF project support such as the funding of the activities of the National Artisan Moderation Body An immediate pressure is the management of the TVET and AET function shift as well as cost implications for examination services (TVET College qualifications and GETC- ABET Level 4 qualification). The Department is able to result all 9 examinations cycles associated with these qualifications. Some activities critical to the integrity and approval of release of results have had to be downscaled or eliminated due to budget constraints. Increasing TVET enrolments is also impacting on the examination budget and service delivery in this area Key Budget Pressures Facing the Department 20
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The Higher Education Aids project has proved to be very successful. The current subsidy by the Department is limited to the University Sector, while roll out started in the TVET sector. Additional financial support for the project is critical to ensure the effective roll out to the TVET sector Key Budget Pressures Facing the Department 21
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The Department currently has 21 SETAs and 5 other Schedule 3A public entities. In addition, oversees 26 universities, National Institute on Human and Social Sciences, 50 TVET Colleges and more than 3 500 AET Centres There are numerous challenges, but the Department has the necessary policies and procedures in place for the monitoring and evaluation of the entities and institutions The Department is, however, not in a position to perform monitoring and evaluation at its fullest extent, as the limitations on operational funding do not allow it All legislative requirements for monitoring and evaluation are performed Reporting takes place to Parliament, the Executive Authority and Accounting Officer and feedback is provided to clients Performance of Public Entities 22
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All the SETAs and other Schedule 3A public entities reports to the Department in terms of the provisions in the PFMA and Treasury Regulations. This include the following: - Strategic Plans - Annual Performance Plans and Service Level Agreements (for SETAs) - Quarterly Reports - Annual Reports In the case of the SETAs, SAQA, QCTO, NSFAS and CHE, monthly financial reporting is currently being under consideration Performance of Public Entities 23
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Block Grants [R20,538 billion in 2015/16 ] Teaching Input Teaching Output Research Output Institutional Factor Earmarked Grants [R9,800 billion in 2015/16] NSFA Teaching and Research development grants Infrastructure and Efficiency Funding Establishing the 2 new universities Foundation Provision Veterinary Sciences Clinical Training Grants Multi-campus Grant Interest and redemption on loans African institute for Mathematical studies HDI Development grant Council discretionary funds Government controlled funds 24 Components of the University Funding Framework
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…….. 25 Funding Allocations 2013/14 – 2016/17
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Number of earmarked grants which, in different ways, contribute directly to improving student success: -Teaching Development Grant (R616.9 million) -Research Development Grant (R199.0 million) -Both aim to enhance the effective of university academic staff in the core roles as educators and researchers -Significant successes have been achieved, and evidence shows that success rates are rising Challenges include sustainability of the many initiatives introduced with TDG and RDG funds, e.g. tutoring and mentoring programmes, and writing centres 26 Student Success
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Foundation Provision Grant: -2015/16 – R304.470million -Main purpose to improve the academic performance of first-time entering undergraduate students, who already comply with the minimum requirements to enrol for a particular university qualification, and who have already enrolled for that qualification, but who are at risk of dropping out due to their poor educational backgrounds -Students are placed on Ministerial approved extended curriculum programmes, which are in most cases one year longer than the regular qualification 27 Student Success
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The Department has embarked on a rigorous monitoring and evaluation processes with respect to earmarked grants to ensure that the funds are effectively utilised In respect of the Teaching Development Grants: in 2014/15, this enabled the re-prioritisation of R272 million to support the New Generation of Academics Programme (nGAP) which represents a different way of supporting academic quality and throughput at universities 28 Cost Containment Measures
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Partnership established with the ETDPSETA to support universities to collaboratively develop the Advanced Diploma in Technical and Vocational Teaching - R1.5m allocation from the ETDPSETA European Union: 20 million Euros - 2015/16 to 2019/20. The Teaching and Learning Sector Reform Contract will focus on qualitatively strengthening teacher education at universities with a focus on the following areas: ECD educator programmes; inclusive and special needs teacher education; primary teacher education and TVET and CET lecturer education 29 Leveraging Partnerships
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With respect to the implementation of the Staffing South African Universities Framework, the Department is working at partnerships with a number of international donors (e.g. Newton fund) to leverage scholarship opportunities to support mobility programmes, as well as a partnership with DST and the NRF to align programmes to more effectively meet joint DHET and DST goals For student housing, the PIC, DBSA and other stakeholders have been approached to assist with funding models and leveraging of funds to accelerate provision of student housing Student Housing Symposium planned in June 2015 to meet with a wider group of stakeholders in the financial and property development industry 30 Leveraging Partnerships
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Large numbers of earmarked grants ( R9.8 billion in 2015/16) Greatest risk: insufficient operational funds and manpower to properly monitor, plan and evaluate projects. A percentage of the funds should be made available for this purpose to ensure effective and efficient use and accountability To mitigate the problem, the Minister approved a five year Sector Monitoring, Evaluation and Support Programme, funded through an earmarked grant from 2015/16 onwards in partnership with a university. This will assist with processes, however it is not ideal as this capacity should be built within the Department 31 Monitoring and Evaluation
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New universities in Mpumalanga & Northern Cape -Significant funding made available in the baseline for the ten year infrastructure development programme which is on track -Limited funding made available for the simultaneous expansion in terms of headcount enrolments. The appropriate resources to support operational funding (to support teaching, learning and research activities) are minimal -Risks: institutions are at risk of not being in a position to support increased enrolments in line with infrastructure development. The state must fund the institutions growth trajectories until they are able to generate sufficient funds 32 Significant Projects and Possible Risks
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The establishment of Sefako Magkhato Health Sciences University and its incorporation of the MEDUNSA campus of University of Limpopo (UL) Challenges and risks: -The capacity of SMU to execute its full mandate -Risk of inadequate resourcing as a cost intensive health and allied sciences university, especially resources to appoint specialised staff (on main funding framework) -Risk of adequate clinical training platforms not being implemented (DoH’s academic/ tertiary hospitals) 33 Significant Projects and Possible Risks
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Expansion of medical schools to meet the needs of the health care system: -Expected expansion of the production of health professionals, especially medical doctors without appropriate funding to support enrolment growth -The development of a new medical school (at UL), as agreed between the Ministers of HET and NH, without additional funding -A second new medical school at NMMU is also being seeded though an initial grant of R10 million from the NSF but will require additional resources to succeed -Medical doctors trained in Cuba – challenges for the system linked on their return 34 Significant Projects and Possible Risks
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SSAUF is a comprehensive, transformative initiative to change and renew the academic profession in South Africa: -First Phase implementation, the New Generation of Academics Programme (nGAP): The first cohort of ‘new academics’, at least 80% black and/or women, are expected to be appointed by late 2015 into permanent academic posts -Challenges - capacity in the systems (universities as well as the Department) to run effectively this complex long- term initiative, and in maintaining the levels of funding needed to support it -A further challenge lies in attracting gifted young black and female students and graduates to the academic profession, and sustaining this interest 35 Significant Projects and Possible Risks
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Agricultural Colleges process -Function shift without transferring sufficient provincial funds is the major risk Central Application Service (CAS): -Sector resistance in terms of mandates of applications especially universities and SETAS -Diverse processes of application in a diverse post school system 36 Significant Projects and Possible Risks
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One of major shortcomings - funding falls far short of demand 1991 - 2015, the Department’s NSFAS funding for loans and bursaries for university and TVET students increased from R441 million to R6.3 billion Allocations to universities will increase from R3.3 billion in 2011 to R4.3 billion in 2016 To fully fund all qualifying NSFAS university students and meet the goals of the National Development Plan, an amount of R36 billion over the 2015 MTEF period is required Number of students supported at universities estimated at 205 000 over the MTEF, assuming current levels of support are maintained and fees do not increase radically and does not include full cost of study for all 37 National Student Financial Aid Scheme
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However, unaudited data provided for the 2014 academic year by NSFAS shows that the number of students has decreased from 194 923 for the 2013 academic year to 187 276 for the 2014 academic year To maintain the level of funding and number of current students an additional R1 billion (escalating at inflationary rates per annum) is required 38 National Student Financial Aid Scheme
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New Historically Disadvantaged Institutions (HDIs) Development Grant prioritised 8 contact universities will be supported through the HDI Grant: -Universities of Fort Hare, Limpopo, Venda, Walter Sisulu, Western Cape, and Zululand; Mangosuthu University of Technology; and Sefako Makgatho Health Science University Funding over the MTEF: R410.734 million for 2015/16 and an indicative amount of R433.532 million in 2016/17 39 Historically Disadvantaged Institutions Development Grant
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Development funds will be allocated for a 5-year period from 2015/16 to 2019/20 Purpose: -Put in place systems to develop and sustain financial health at these universities -Strengthen academic enterprise -Realise potential Earmarked grant will be based on approved plans Continuation on basis of detailed progress report and satisfactory audit reporting of the use of the funds 40 Historically Disadvantaged Institutions Development Grant
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Plans should also strengthen and streamline academic, management and administrative systems, through the following measures: -Reduce student over-enrolment -Improve the student experience, especially at first year level -Develop niche academic and research areas At end of 5 years (2019/20) Minister will determine: -Need to continue HDI Development Grant -If continued, which institutions should continue to be supported -How phasing out of the grant should be implemented from 2020/21 onwards 41 Historically Disadvantaged Institutions Development Grant
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For the period 2012 – 2015 infrastructure allocations to HDIs amount to more than R2.5 billion of the available R6 billion. This represents 42% of the total funds whilst the HDIs only represented 15% of the actual teaching input units in 2013 42 Historically Disadvantaged Universities Improvement in Infrastructure Allocations
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All the HDIs have received much higher increases in their block grants compared to the average for all universities over the period 2004/05 to 2014/15 as a result of the introduction of the current funding framework 43 Total Percentage Increase in the Block Grant for the HDIs over the Period 2004/05 to 2014/15
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Total allocation (2015/16): R6,1 billion -Compensation of Employees: R4,9 billion (80%) -Subsidies: R1,1 billion (18%) -Goods and services: R95 million (2%) Total retention of approximately 80% of total allocation by Department to compensate staff on PERSAL due to function shift 1 April 2015. This retention is based on 63% approved staff cost including a provision of 63% of 80% of bursary support funded via NSFAS TVET subsidies are in support of operational cost for TVET Colleges and paid in 3 payments by the Department, namely April, September and January during each financial year 44 Key Components of the TVET College Funding Framework
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A comprehensive teaching and learning plan will be developed and institutionalised and monitored to support Colleges to ensure that Colleges improve teaching and learning A foundation programme will be developed for grade 9 learners wishing to access vocational programmes. This programme should improve the success rate of learners in the TVET sector A placement test is being explored which will aim to channel learners in suitable fields of study. This will work in tandem with the foundation programmes The Department will develop a protocol for the secondment of sector specialists to Colleges to support improved teaching 45 Student Success
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A video based lecturer development system is being implemented through a Dutch funded project. This will enable the department to reach significantly more lecturers in a shorter time. Initially this will focus on curriculum updates for lecturers A framework for partnership development and management will be developed to support cooperation between Colleges, industry, other Government Departments as well as international counterparts A dual system programme will be piloted with the newly developed occupational programmes to test implementation in the Colleges Systematic reform of the N4 - N6 programmes will continue under the guidance of the QCTO 46 Student Success
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The NC(V) policy will be reviewed under the guidance of Umalusi Policy on student attendance (minimum 80% student attendance required) and implementation thereof Development of foundation programmes and students academic support programmes Challenges to improve student success include: -Student strikes and damage to property -Lost teaching and learning time due to students and staff/lecturer strikes -Poor/limited career guidance and choice of programmes -Outstanding student certificates – limited accurate picture on the performance of the TVET college sector 47 Student Success
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Infrastructure – new campus sites -Funding made available through NSF and SETA contributions -16 sites in Rural areas. Construction at first 3 sites commenced namely Thabazimbi, Inkandla A and Bhambanana -Risks: Colleges are at risk of not being in a position to support increased enrolments in line with infrastructure development. Additional subsidies are required for operations to ensure that the full potential of the new sites are achieved -There is a need to create a dedicated Infrastructure Support Grant for the TVET Sector 48 Significant Projects and Possible Risks
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TVET Funding Framework review: -A Ministerial Committee was appointed to review the current funding framework for Technical and Vocational Education and Training (TVET) and Community Education and Training (CET) Colleges and to make recommendations on the most appropriate funding framework -The main reason for the review is to ensure the effectiveness of the funding framework in enabling TVET Colleges to play a key role in producing a skilled and capable workforce to support an inclusive growth path -This will culminate in the proposed new and/or revised funding norms -Analysis will be performed on the current funding framework and to make an international comparative analysis 49 Significant Projects and Possible Risks
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SAICA Support Chief Financial Officer and Human Resource Support project: -The Department has collaborated with the South African Institute of Chartered Accountants (SAICA) towards a management capacity development initiative currently implemented at all public TVET Colleges -Main objective is to strengthen institutional capacity of TVET colleges to improve their: o Performance o Efficiency o Financial management -Qualified Chartered Accountants and Human Resource Generalists have been deployed to public TVET colleges under this project 50 Significant Projects and Possible Risks
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Inherent system and project challenges: -Prioritised to fill all key management vacancies in colleges -High CFO vacancy rate -Inability of skills transfer, thus compromising College Finance and HR sustainability -Colleges might be compromised and destabilised if vacancies are not filled or when the SAICA project ends -Establishment of the South African Institute for Vocational and Continuing Education and Training has the specific aim to improve the quality of teaching and learning in TVET and Community colleges. Without fiscal funding it is not possible to establish and effectively operate this entity. Measures are currently being put in place to perform some of the SAIVCET functions within the Department but for longer term sustainability, fiscal funding must be considered 51 Significant Projects and Possible Risks
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Partnerships have been established with universities to support the delivery of level 5 Higher Certificate programmes Programmes are being developed in conjunction with other Government Departments to support skills development, e.g. Department of Health and Transport Significant partnerships have been established with international donors who are supporting the following projects: - CINOP: Lecturer development project - EU: University based lecturer programmes developed - GIZ: Dual system pilot projects - Danida: Student support projects - Swiss: Swiss companies and the Swiss embassy supporting a college improvement project 52 Leveraging Partnerships
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NSFAS funding (2015/16): R2.2 billion -NCV: R1.2 billion (56%) -Report 191: R725 million (34%) -Student allowances: R218 million (10%) This bursary funding currently supports approximately 252 000 students To fully fund all qualifying NSFAS TVET students and meet the goals of the National Development Plan an estimated additional amount of R22.3 billion would be required over the next three year MTEF cycle as follows: -2015/16 – R5.4 Billion -2016/17 – R7.7 Billion -2017/18 – R9.2 Billion 53 TVET NSFAS Funding
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The Department is monitoring and evaluating the activities of TVET Colleges through the following: -TVET College Strategic Plans developed in conjunction with the Department -TVET College Strategic Plans approved by the Minister -Performance agreements for TVET College Principals -A monitoring and evaluation framework – quarterly -College Councils playing an oversight role -Review of TVET Colleges Annual Reports 54 VCET Cost Containment Measures and Monitoring Performance
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The Department is in the process to develop an enhanced monitoring and evaluation framework for TVET Colleges that will include amongst others, financial, governance as well as curriculum oversight processes. This will also include a student support plan Cost containment measures as well as sound procurement processes have been reinforced by the Department into TVET Colleges through the implementation of an approved Supply Chain Management Policy that has been aligned with the National Treasury procurement guidelines 55 VCET Cost Containment Measures and Monitoring Performance
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The Department acknowledges and appreciates the current funding and appropriations for the Post-School Education Sector Based on the assessment of the Department’s appropriations, it would not be possible to meet all the NDP goals Additional funding would be required to meet goals and ensure the effective expansion of the system including the required support to ensure all funded entities effectively spend transferred funds and meet their performance targets The Department acknowledges that improvements are required in terms of student success throughout the Post- School Education and Training System and remains committed to ensure that the budget is aligned with the broader sector to ensure the effective performance in terms of Outcome 5 56 Summary Remarks
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Thank You
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