Education handbook 1st edition by Argo

Sue Fontannaz, Editor

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The Education Handbook is designed to provide time pressured educational executives with a comprehensive guide to the achievements and challenges facing us in transforming education to deliver on society’s needs.

Launch Edition 2009

A PLATFORM FOR COLLABORATION

In 2008, Argo - the publishers of the successful National Teacher’s Diary and the initiators of the Stars in Education Awards - identified the need for a handbook to give key stakeholders an overview of education in South Africa at a strategic level. Following months of in-depth research and collaboration with key role-player s in the Education Arena, the Education Handbook was published in July of 2009. It is a groundbreaking oppor tunity to improve the quality of education for all. • The Handbook provides a comprehensive over view of education in South Africa with up to-date information about the policies, framewor k, projects and initiatives that will shape our future. • 3000 Handbooks has been distributed to key stakeholder s in education, including the DoE, leading foundations, NGO’s and corporates. • It is a unique oppor tunity for key stakeholder s to share learning’s and gain insight about the challenges we face. • The emphasis is on working together to create a sustainable future.

ORDER EDUC ATION HANDBOOKS For more infor mation about the Education Handbook and to order a copy of the publication, please contact Ar go. T: 021 865 2813 | F: +27 21 865 2166 | E: info@argo.org.za Petershof, Devon Valley Road, Stellenbosch, 7599 P.O. Box 7177, Stellenbosch, 7599 | www.argo.org.za

CONNECTING TO MAKE A DIFFERENCE TOGETHER, WE CAN IMPROVE EDUCATION FOR ALL

C O N T E NTS

F O R E WO R D

CHAPTER 1 INTRODUCTION & OVERVIEW. . . Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Purpose of the Education Handbook . . . . . . . . . . . Key Achievements . . . . . . . . . . . . . . . . . . . . . . . . . . Key Statistics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Education Budget . . . . . . . . . . . . . . . . . . . . . . . . . . . Key trends and education spend . . . . . . . . . . . . . . .

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......1 . . . . . . 2 . . . . . . 4 . . . . . . 6 . . . . . . .8 . . . . . 24 . . . . . 24

CHAPTER 2 EDUCATION IN CONTEXT . . . . . . . . . . . . . . . . . . . . . . . . Historical Perspective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Socio-Economic Context . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Highlights from the 2009 National Budget . . . . . . . . . . . . . . . . . . . . . . . . . .

27 28 32 40

CHAPTER 3 RESTRUCTURING THE EDUCATION SYSTEM . . . . . . . . . . Introduction and Over view . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Vocational Education and Training (VET) . . . . . . . . . . . . . . . . . . . . . . . . . . . . The National Human Resource Development Strategy (NHRDS) . . . . . . . . Accelerated Shared Growth Initiative (ASGISA) . . . . . . . . . . . . . . . . . . . . . . Broad Based Black Economic Empowerment (BBBEE) . . . . . . . . . . . . . . . . . The National Qualifications Framework (NQF). . . . . . . . . . . . . . . . . . . . . . . The National Youth Development Agency (NYDA). . . . . . . . . . . . . . . . . . . .

43 44 46 47 48 48 50 52

CHAPTER 4 GOVERNANCE & FINANCING . . . . . . . . . . . . . . . . . . . . . . Co-Operative Governance Model . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Education Financing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Depar tment of Education Budget & Strategic Plan 2008/09 . . . . . . . . . . . . .

55 56 62 66

CHAPTER 5 EARLY CHILDHOOD EDUCATION (ECD) . . . . . . . . . . . . . Introduction and Over view . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . The Need for collaboration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Financial suppor t for ECD Provision . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Multi-media Suppor t for ECD . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Teacher development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

69 70 72 73 73 74

CHAPTER 6 INCLUSIVE EDUCATION AND EQUITY Inclusive Education In South Africa . . . . . . . . . . . . . . . . . Financing of Inclusive Education and Special Needs . . . . Care Dependency Grant Suppor t for Families . . . . . . . . Strategy on SIAS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . The Status of Inclusive Education . . . . . . . . . . . . . . . . . . The Up With Downâ&#x20AC;&#x2122;s Project . . . . . . . . . . . . . . . . . . . . .

77 78 80 81 81 82 84

CHAPTER 8 THE TEACHER & THE TEACHING CAREER . . . . . . . . . . . 105 The teacher as educator . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 106 Rationalisation of the teaching force . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 108 Norms and Standards for Educators (NSE) . . . . . . . . . . . . . . . . . . . . . . . . . 108 Profile of the teaching force and working conditions . . . . . . . . . . . . . . . . . 110 Problems perceived by Teachers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 114 The Teaching Career. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 116 Focus areas for improving teaching quality. . . . . . . . . . . . . . . . . . . . . . . . . . 124 Recommendations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 125 CHAPTER 9 CURRICULUM DESIGN & LEARNER SUPPORT MATERIAL . . 127

Published by Argo www.argo.org.za, Tel 021 865 2813 or info@argo.org.za. Published in Stellenbosch, South Africa, July 2009. By Argo, Devon Valley Road, Stellenbosch, South Africa. Tel: 021 865 2813, info@argo.org.za, www.argo.org.za Managing Editor: Sue Fontannaz Editorial team: Jeanne Reeder, Wendy Samuels, Kerri Ann Jeffer y, Kate Miszewski, Shihaam Domingo, John Samson, Jeanne Enslin. Production Manager: Jeanne Reeder Design and Layout: Limbik (www.limbik.co.za) Printing: CTP Book Printers Disclaimer: While ever y effor t has been taken to ensure that the information contained in this publication is accurate and complete, Argo cannot accept any legal responsibility for action taken on the information given or the opinions expressed on this information. E & 0.E. All rights reser ved. The material in this publication may not be reproduced, stored or transmitted, in any form or by any means, without the prior permission of the copyright holder. Any information from the Education Handbook used in other sources must accurately reference the publisher and the title of the Handbook. Copyright of photographs resides with the photographers. ISBN: 978-0-620-44283-1 Education Handbook

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Curriculum Reform . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 128 Textbook Publication, Budget Allocation and Distribution . . . . . . . . . . . . . 130 Recommendations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 133 CHAPTER 10 FURTHER EDUCATION & TRAINING (FET) COLLEGES . . 135 Introduction and Over view . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 136 Student Enrolment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 137 OECD Review Findings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 138 Recommendations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 139 CHAPTER 11 HIGHER EDUCATION (HE). . . . . . . . . . . . . . . . . . . . . . . 141 Introduction and Over view . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 142 Transformation Model for Higher Education . . . . . . . . . . . . . . . . . . . . . . . . 144 Restructuring of the System. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 146 Recommendations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 153 CHAPTER 12 ADULT & BASIC EDUCATION TRAINING (ABET). . . . . . 155 Introduction and Over view . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 156 The Need for Collaboration. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 157 Recommendations from the OECD Review . . . . . . . . . . . . . . . . . . . . . . . . 159 CHAPTER 13 CONCLUSIONS AND CONTINUATION . . . . . . . . . . . . 161 Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 162 Where to from here? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 164

CHAPTER 7 GET, EDUCATION QUALITY & LEARNER ACHIEVEMENTS . . . 87 General Education and Training and Over view . . . . . . . . . . . . . . . . . . . . . . . 88 Learner Achievements. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 90 Improving Literacy and Numeracy on the Ground - What does it take?. . . . 94 OECD Review of Learners Achievements. . . . . . . . . . . . . . . . . . . . . . . . . . . 98 Educational Initiatives to improve education quality. . . . . . . . . . . . . . . . . . . 100

EDUCATION HANDBOOK

The 10-Point Programme . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 164

Education reform has been a priority in South Africa since the establishment of the Government of National Unity in 1994. In this context, education has played a key role in redressing past injustices and contributing to a better future for all. There has been an extensive policy overhaul, which has resulted in a unified national depar tment of education, a revised curriculum and almost universal enrolment at school, suppor ted by pro-poor funding policies. Challenges exist in implementing the policy reforms and the focus is now on delivering quality education for all. The Quality Learning and Teaching campaign emerged from the Polokwane Resolution that education and health be placed at the centre of social transformation in the next five years. This campaign focuses on three critical factors: teachers, textbooks and time and the campaign aims to build partnerships with all stakeholders, in particular, between the Department of Education and the teacher unions. The Education Handbook provides educational leaders with an overview of the education sector, and acts as a key resource to inform and enable collaboration in education. By profiling both the achievements and the challenges faced in education, this resource provides a balanced view of an education sector in transition and offers us a platform to build a broader suppor t base for achieving the dream of quality education for all. It is time for us to connect and build on our achievements and make quality education a reality in South Africa.

NON GOVERNMENT ORGANISATIONS . . . . . . . . . . . . . . . . . . . . . . . 167 USEFUL SOURCES OF INFORMATION . . . . . . . . . . . . . . . . . . . . . . . . 177

EDUCATION HANDBOOK

Sue Fontannaz Research Director, Argo

E D I TO R’S LETTER

The time has come for us to come together and build on the strong policy foundation which has been developed since the democratic elections in 1994. We now have one of the most enlightened education policy frameworks – but without action, this forward thinking policy will be meaningless. The South African education system is in transition and remains a developmental framework. There have been major achievements in policy development, but challenges remain in implementing these ideals. There is no quick fix solution and we need the energy, commitment and collective action to make the ideals expressed in this policy a reality.

commissioned by the former Minister of Education, to provide Government with an objective review of the progress in Education and to provide insights for strategy development for the future. The handbook includes extensive referencing to enable you to access a range of information from a variety of sources on topics which are of special interest.

Transformation requires purposeful action on all fronts – this challenge cannot be abdicated to Government alone – it needs all our commitment to make it happen. But action without insight can also create unintended consequences, which could undermine our effor ts so far.

This review has been expanded on with practical insights, case studies and opinions from educational leaders, to ensure that the focus of the handbook is on practical solutions to making a difference in education. Whilst it is essential to understand the policy which informs educational transformation, it is implementation which is now required to deliver results.

For this reason, we have launched the Education Handbook, which is designed to provide time pressured educational executives with a comprehensive guide to the achievements and challenges facing us in transforming education to deliver on society’s needs. As a leader in education, you have limited time to research the key issues and the handbook offers you a concise overview of over 1 000 pages of research in an easy to read, concise format. The handbook is informed by the recent publication of the OECD repor t on education, which was

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EDITOR’S LETTER

Phenomenal work is being done, which often remains under the radar. To those individuals who give of their time in contributing to community based suppor t of education and in developing NGO’s to meet the needs of learners in challenging socio-economic conditions, we salute you for your efforts and call on corporate funders to continue to invest in this essential support mechanism, which goes unrecognised in the reality of dealing with the economy.

We have also initiated the “Stars in Education” initiative, which recognises teachers who do more than teach – who support learners in ways that go beyond the call of duty. We believe it is essential to rebuild a sense of pride in the teaching profession and to recognise that teaching requires someone special to take on this essential role in the community – those who act as guides for our children and who are entrusted to keep our children safe at school. www.argo.org.za

EDUCATION HANDBOOK

We would also like to acknowledge the insights and action of key stakeholders, who are committed to making a difference in education and who lead transformation in education. Without you, education policy would remain an ideal and our society would be under threat. So, we would like to recognise you as the “Stars in Education” and extend our teacher recognition initiative to include you in making a difference in education, and a better society for all. In researching the Education Handbook, we have identified a need to collaborate in real time and to connect to make a difference in education. We have profiled planned initiatives, including www.teacher.org.za and the “Stars in Education” conference to encourage collaboration. We need to ensure that these initiatives suppor t your effor ts in transforming education and we would love to get your insights on these initiatives. This will ensure that they address the challenges that we face in transforming education and making quality education a reality that we can all be proud of. Finally, this handbook would not be a reality without the dedicated commitment of the team at Argo. Thank you for your commitment and energy in making this a reality and for going the extra mile to deliver on something that makes a difference in Education. It has been a great project to work on as it has brought us closer and connected us to some amazing people that care enough to make a difference. This is a special project, which goes to the hear t of our purpose of connecting leaders, to make a difference by suppor ting achievers at their very foundation – education.

SUE FONTANNAZ Editor

EDUCATION HANDBOOK

EDITOR’S LETTER

WE SUPPORT ACHIEVERS EVERYDAY, EVERY STEP OF THE WAY!

For more than 11 years, the team at Argo has published a range of multi-media solutions, effective systems and resource guides to unleash individual potential and drive team performance.

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Time to Connect Continuous research and development has produced a range of multimedia products, supporting achievers in times of critical change. AT BASE CAMP, WHERE EDUCATION SETS THE FOUNDATION FOR FUTURE ACHIEVEMENT. National Teacher’s Diary reaching 240 000 teachers | National Teacher’s Guide reaching 150 000 teachers | Stars in Education Awards and Education Handbook reaching 3 000 key stakeholders | www.teacher.org.za

AS ACHIEVERS MOVE AWAY FROM THE SECURITY OF BASE CAMP AND START THE DIFFICULT PATH FROM SCHOOL TO CAMPUS LIFE. SAstudy.co.za is the country’s most comprehensive under-graduate qualifications database | Campus Style Guide reaches 65 000 trendsetting students | Q-one Trend Diary reaches 100 000 students. AS EMPLOYEES TRANSITION TO BECOME EXECUTIVES. THE SHIFT FROM INDIVIDUAL ACHIEVEMENT TO TEAM COLLABORATION.

Building on the foundation of the Education Handbook, www.teacher.org.za is a new online platform with up-to-date information about the key repor ts, issues and initiatives covered in this publication.

We’d like to hear your comments and

InTroduction & Overview

INTRODUCTION

PURPOSE OF THE EDUCATION HANDBOOK

KEY ACHIEVEMENTS

KEY STATISTICS

POPULATION COMPOSITION

SCHOOL STATISTICS FOR 2007

COMPARISON OF THE YEARS 2002 TO 2007

NATIONAL SENIOR CERTIFICATE RESULTS

PUBLIC HIGHER EDUCATION INSTITUTIONS

EDUCATION BUDGET

KEY TRENDS IN EDUCATION SPEND

suggestions on how we can improve and expand both the website and the next edition of the Education Handbook. Log onto www.teacher.org.za today and post your comments to make a real difference.

Performance ESP Framework | The Executive Blueprint Programme Quorum Executive System. We partner with leading institutions and industry architects to support achievers everyday, every step of the way. These include the DoE, SADTU, Cape Peninsula University of Technology, Old Mutual Business School; University of the Free State and many more...

v CHAPTER 1 www.argo.org.za

For more information about Argo - a Level 3 BBBEE contributor - please visit our EDUCATION HANDBOOK

website or contact us directly. Tel +27 (0)21 865 2813 | Email info@argo.org.za

EDUCATION HANDBOOK

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INTRODUCTION

Education is what connects us – it helps us understand that a better future is in our interests. It is the flow of values from old to young and the flow of innovation from young to old. It is what brings us together to form communities, at school functions and through our children connecting with each other. It is what breaks down old prejudices, as we see the future through the eyes of our children, unbiased by past prejudices. Education builds a better society and it is the essential element for democracy in South Africa. Without it, we remain in the past, divided by past inequalities and prejudice. By placing education as the central theme for creating a better future, we recognise our need to connect, to build and to leave a legacy of a democratic, fair society for our children. By doing this we fulfill our basic need to connect and build communities, to achieve a better future for all. The central role of education in our society is illustrated in the mainstream media, who provide a constant backdrop of the challenges that we face as a society in delivering quality education for all (EFA). However, it is understood that bad news sells newspapers and the majority of these stories focus on the failures within the system, which are then repeated to each other as we connect in our daily lives. Everyone has ideas on how to fix education and it is a common belief that nothing is being done to resolve the crisis. Whilst we recognise that there are challenges in education and respect the call

for accountability, it is essential to inform our perceptions on education, by balancing the negativity in the media with an overview of the achievements in the education sector. Only by informing our opinions on education, will we be able to work together to make a difference. We have come a long way in the fifteen years since the first democratic elections which signified the end of apar theid in South Africa. These elections can be described as one of the most significant historical events of the late twentieth century and the challenge after these elections was to build a new South Africa on the principles of universal human rights. The education system is regarded as central to the transformation of our society to achieve the democratic ideals described in our constitutions. Historically, education was central to political effor ts to segregate racial groups and maintain white minority rule. Post 1994, the Government identified the central role that education plays in societal reform and the focus was on creating a single, unified national system with the priority on access

and reforming the curriculum in line with the emerging knowledge economy. One of the key principles in educational reform was to ensure that a national public education system would be formed that would avoid racial segregation.

“Education forms a crucial conduit through which the ideals, values, knowledge, attitudes, skills and relationships cherished by a society are made available to learners of all ages.” 1

1 OECD (2007), Review of National Policies for Education South Africa, p 125, OECD, Paris.

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EDUCATION HANDBOOK

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Purpose of the Education Handbook

P urpose of the Education H andbook The purpose of this Education Handbook is to provide a comprehensive overview of the education system, highlighting central themes which are topical in the mainstream media and in current government publications. In developing the Handbook, the star ting point is the repor t prepared by the Organisation for Economic Co-operation and Development (OECD). The OECD is a forum where the governments of 30 democracies work together to address economic, social and environmental challenges. The OECD repor t was commissioned by the former Minister of Education to provide an overview of education transformation, which could then be used to inform policy development after the 2009 elections. The OECD review was informed by a background repor t by the Wits Education Policy Unit (EPU) and information supplied in meetings and site visits. The review offers an analysis of education within the social, political and economic context of South Africa. Recommendations on a systemic approach to policy development, prioritising issues of access and equity, governance, school leadership, teacher suppor t, student evaluation and efficient resource use, are introduced.

KEY Achievements

tional perspectives have influenced policy development, which is subject to continuing debate regarding the effectiveness of the policy formulation and implementation. The key themes are whether policy is sufficient to create a more equitable society and whether this policy is practical, given the challenges faced in education. It could be argued that the rapid, collective formulation of highly advanced, idealistic education policy has had impor tant political and symbolic effects on transformation, despite the lag in implementation. There have been three phases in the policy cycle since the democratic elections: • An intensive focus on policy formulation, • Followed by a concentrated effor t at implementation, • And the current phase, where policy is being reformulated or revised to address problems in the implementation stage. This phase is defined by formulation and implementation occurring together, which is resulting in a more stable and settled system.2

There are six main policy levers which are aimed at transforming the education system: • The National Qualifications Framework (NQF) and skills development;

Specifically, the report acknowledges the huge strides that have been made in policy development and change since the democratic elections. The report also highlights the impact of these policy changes on education with insights into implementation challenges that are now facing key stakeholders.

• Curriculum reform

The OECD review confirms that intense political debate and international educa-

• Education financing

The pur pose of this Education Handbook is to provide a comprehensive over view of the education system, highlighting centr al themes which are topical in the mainstream media and in cur rent gover nment publications.

• Textbook publication, budget allocation and distribution • Improved teacher utilisation, supply and training • Improving the quality of education

2 OECD (2007), Review of National Policies for Education South Africa, p 75, OECD, Paris.

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EDUCATION HANDBOOK

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KEY ACHIEVEMENTS

K ey Achievements The OECD review confirmed that the Government has achieved some incredible milestones since the 1994 democratic elections. These achievements include: • A more integrated qualifications framework, • A more relevant curriculum, • Better qualified teachers, • Improved school governance and increased financing. The OECD report also confirmed that the quality of education is also being improved by a range of initiatives including: • The Dinaledi “centres of excellence” in mathematics, technology and science. • QIDS UP (Quality improvement, development, support and upliftment programme) providing teacher and district development support for 5 000 underperforming primary schools. • The Education Management Information System. • The Integrated Quality Management System. • A planned National Education Development Unit, to focus on improvement and measurement of teacher performance. • The National Education Infrastructure Management System, to improve school infrastructure. • Improved remuneration and training for principals and improved support for district and school personnel. • Bursaries to encourage teacher training and professional development.3 Educational transformation and policy implementation have been constrained by: • The scale of the existing backlogs. Transformation is dependent on revenue generated by economic growth. Since 2002 improved economic growth has ensured investment in education, but real expenditure on education has declined slightly as a share of both total government expenditure and GDP. The current global crisis has impacted on projected economic growth figures, which is now projected at 1.9% for 2009. Despite this, education spend is budgeted to grow by 14%.4 • Budget constraints and competition from other social sectors for scarce government resources. • Inefficiencies in education management and delivery and lack of capacity at provincial and district levels. • Difficulties in containing expenditure on educational personnel and in redirecting funds towards other expenses. • The scale of the existing inequalities and the desire for equality in per capita learner expenditure despite large disparities between schools and provinces. This is compounded by the provincial departments’ inability to spend available resources. The desire to equalise per capita learner expenditure despite large disparities between provinces and schools.5 3 4 5

OECD (2007), Review of National Policies for Education South Africa, p 24, OECD, Paris. Polity.org.za, National Budget Speech 2008 by South African Finance Minister Trevor Manual, 20 February 2008, http://www.polity.org.za/print-version/national-budget-speech-2008-by-south-african-finance-minister-trevor-manuel-20022008-2008-02-20. OECD (2007), Review of National Policies for Education South Africa, p 25, OECD, Paris.

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The education system is currently in a period of transition and one of the strengths of the system, which was identified in the OECD repor t, is its openness to selfquestioning and its willingness to adapt in light of experience. In addressing the scope of educational transformation, it is essential to reflect on the conceptualisation, process, timing and realisation of the process. There are a host of issues which are central to the dynamics of educational change, which need to be addressed. These include communication, consultation, value orientation, re-skilling and resourcing, amongst others.6 The OECD repor t confirms that the policy emphasis and legislative framework have established the principles and direction for education transformation. The policy spectrum is wide ranging with a lifelong emphasis - from the cradle to the grave.This is aligned to the recurring theme presented by international organisations such as the OECD and European Union (EU). The structure of the Education Handbook has been informed by the OECD repor t to provide time pressured executives with a concise, comprehensive overview of education. The next section provides a snapshot of education statistics and contextualises education in the broader socio-economic landscape. It also provides a historical perspective of education legislation to broaden understanding of the challenges faced in educational transformation. The following chapters describe the education system and include an overview of the restructuring that has occurred in the last 15 years. This restructuring has led to a unified system, which includes Early Childhood Education, General Education (which includes compulsory education and inclusive education for special needs), Fur ther Education and Training (FET) (including grades 9 to 12 and vocational training), Higher Education and Adult Based Education.

The General Education section includes an overview of school governance and financing, learner achievements, the teaching profession, curriculum design and textbook provision. Each section includes an overview of policy development and insights on practical implementation from leaders in the field. Whilst it is acknowledged that there are daunting challenges ahead for educational transformation, the central theme of this handbook is on recognising and appreciating the incredible achievements that have been realised by ordinary individuals. Future achievements need to be addressed with an open mind focused on turning possibility into reality. Great things will never be accomplished by focusing on our failures – it is with a spirit of hope that courageous individuals make a difference.

“It is to have the courage and persistence to distinguish the downward spiral from the radiant realm of possibility in the face of any challenge.” Ben Zander 7

6 OECD (2007), Review of National Policies for Education South Africa, p 130, OECD, Paris. 7 Zander, R & Zander, B. The Art of Possibility, p 163.

EDUCATION HANDBOOK

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KEY STATISTICS

K ey statistics

The compulsory education phase (grades 1-9) is achieving almost full enrolment rates. However, there are still over 200 000 in the 7-15 age group who do not attend school.16 The main reasons cited by the majority of learners are the costs of school fees, illness and the view that education is “useless and uninteresting”. It is estimated that 10% (4.7 million) of the population are completely illiterate. 17 The gross enrolment rate was 99% for the primary phase and 88% for the secondary phase. The gender parity index (GPI) was 98% for the primary phase and 1.10 for the secondary phase.

2 021 380

394 225

42.2% of South Africa’s population of 47.9 million is under 20 years.

Number of teachers in schools of which 21 883 were employed by independent schools.

50.2%

31.5 : 1

The unemployment rate in the15-24 year age group. 28.5% in the 25-34 year age group.

The national average learner to teacher ratio.

14 167 086 Learners in all sectors of the education system.

The highest propor tion of learners in ordinary schools are in the foundation phase (30.4%) with the propor tion of learners decreasing as these learners move up through the grades. The FET band (excluding learners at FET colleges) comprised only 21.5% of learners in ordinary schools. The propor tion of learners in the pre-grade R phase is also very low (0.3%). This reflects that fact that Government do not provide pre-grade R programmes in schools. 0.1% 0.3%

200 000

21.5% 30.4%

The number of children in the 7-15 age group who do not attend school.

PRE-GRADE R PHASE

SENIOR PHASE

FOUNDATION PHASE

FET BAND

INTERMEDIATE PHASE

OTHER

22.4% 25.2%

P opulation composition In 2007, the total South African population was 47.9 million of which 42.2% were under 20 years8. Fifteen million of the population are children (5-19 years of age)9 and 14 million are learners, with 12,2 million (88%) in the school system.10 The population growth rate is 1%11, with 79.6% African, 9.1% White, 8.9% Coloured and 2.5% Indian or Asian. Just over half the population is urbanised. Life expectancy at bir th is estimated at 48.4 (male) and 51.6 (female). 12

School statistics for 2 0 0 7 In 2007, there were 14 167 086 learners in all sectors of the education system, of which 12 048 821 (85.0%) learners were in public schools and 352 396 (2.5%) were 8 10 12 14 15

in independent schools. There were 761 087 (5.4%) learners in higher education and 320 679 (2.3%) in public FET institutions. There were 292 734 (2.1%) learners in public ABET centres, 289 312 (2.0%) in ECD sites and 102 057 (0.7%) in special schools. There were 26 065 ordinar y schools in South Africa, of which 1 086 (4.2%) were independent schools. There were 394 225 teachers in these schools in 2007, of which 21 883 (5.6%) were employed in the independent school sector. The mainly rural provinces tend to have propor tionally more schools with fewer learners than the more urbanised provinces. The national average for the learner to teacher ratio was 31.5:1 and the learner to school ratio was 476:1. Most current teachers were trained under Apar theid and the rationalisation process in the late 1990’s resulted in a loss of experienced teachers. However, learner to teacher ratios in former disadvan-

taged schools have improved. The more privileged schools are also able to use their fee-charging capability to employ additional teachers.13 There are major imbalances in teacher supply and demand between and within provinces and teacher graduate numbers have dropped to less than 1/3 of estimated annual replacement requirements. At least one third of graduates intend to teach outside South Africa, if they teach at all after graduating.14 54% (of which two thirds teach in the technology, natural sciences, economics and management fields) have recently considered leaving the profession. Many teachers are ill-prepared to teach assigned grades, come late to school, leave early and do not provide feedback on homework and spend too much time on administrative tasks. In South Africa, three quarters of adults have completed at least grade 6, half have completed grade 9 and under a third have completed grade 12.15

Statistics South Africa, 2006b, Depar tment of Education, 2006f, p 29. | 9 Statistics South Africa, 2006b, Depar tment of Education, 2006f, p 19. Statistics South Africa, 2006b, Depar tment of Education, 2006f, p 45. | 11 Statistics South Africa, 2006b, Depar tment of Education, 2006f, p 29. Statistics South Africa, 2007a, p 29. | 13 OECD (2007), Review of National Policies for Education South Africa, p 22, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 23, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 20, OECD, Paris.

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EDUCATION HANDBOOK

Figure 1: Percentage distribution of learners in ordinary schools, by phase, in 2007. 18 Source: Education Statistics, 2007:11

85%

2% 2% 1%

PUBLIC SCHOOLS

PUBLIC ABET CENTRES

PUBLIC HE INSTITUTIONS

ECD SITES

INDEPENDENT SCHOOLS

SPECIAL SCHOOLS

PUBLIC FET COLLEGES

Figure 2: Percentage distribution of learners in the education system in 2007. 20 Source: Education Statistics, 2007:3

16 General Household Survey, 2006, Statistics South Africa, 2007b. 17 OECD (2007), Review of National Policies for Education South Africa, p 22, OECD, Paris. | 18 Department of Education, 2009. Education Statistics in South Africa 2007, p 11. 19 Department of Education, 2009. Education Statistics in South Africa 2007, p 3.

EDUCATION HANDBOOK

CHAPTER 1

Comparison of the years 2002 to 2007

C omparison of the years 2002 to 2007 Between 2002 and 2007, learner numbers showed a net increase of 4.1% and teacher numbers showed a net increase of 9.5%. The number of schools decreased by 5.7% in the same period. Nationally, an upward trend is reflected in learner numbers for each year from 2002 to 2007. Except for 2004, a downward trend is reflected in school numbers for the same period. The teacher trend line remained consistent from 2002 to 2004 and then showed a noticeable increase from 2004 to 2007. This reflects the fact that, for the first time, teacher numbers included all SGB-paid teachers at public schools. The learner to teacher ratio remained fairly consistent from 2002 to 2004 and then decreased from 2004 to 2005 and then stayed fairly consistent from 2005 to 2007. The same reason for the slight variance is given as for the teacher trend line. The learner to school ratio shows that this ratio increased from 431:1 to 476:1, which represents a net increase of 10.4%.

Table 1: Comparing learners, educators and schools in the ordinary school sector, by province, from 2002 to 2007

Learners

Educators New

Old

Province

Schools New

Old

New

Old

2002

2003

2004

2005

2006

2007

2002

2003

2004

2005

2006

2007

2002

2003

2004

2005

2006

2007

Eastern Cape

2,072,054.00

2,116,426.00

2,150,308.00

2,206,575.00

2,100,425.00

2,136,713.00

65,865.00

64,865.00

64,364.00

67,230.00

63,098.00

6,616.00

6,191.00

6,165.00

6,194.00

6,333.00

5,886.00

5,834.00

Free-State

705,368.00

696,155.00

690,490.00

689,189.00

685,971.00

680,777.00

22,517.00

22,596.00

23,144.00

23,400.00

23,439.00

23,570.00

2,343.00

2,186.00

2,075.00

1,924.00

1,818.00

1,744.00

Guateng

1,617,017.00

1,661,817.00

1,697,908.00

1,745,262.00

1,863,375.00

1,883,538.00

52,601.00

53,749.00

53,577.00

60,121.00

60,707.00

63,216.00

2,331.00

2,225.00

2,253.00

2,256.00

2,388.00

2,397.00

KwaZulu-Natal

2,729,834.00

2,783,051.00

2,718,176.00

2,719,966.00

2,768,015.00

2,848,652.00

74,500.00

77,829.00

76,895.00

80,979.00

85,220.00

88,042.00

5,722.00

5,788.00

5,865.00

5,794.00

5,954.00

6,057.00

Limpopo

1,839,079.00

1,816,852.00

1,893,626.00

1,906,402.00

1,771,320.00

1,816,230.00

56,263.00

54,298.00

53,694.00

56,160.00

53,652.00

54,769.00

4,763.00

4,251.00

4,294.00

4,243.00

4,102.00

4,140.00

Mpumalanga

914,353.00

914,739.00

934,786.00

914,212.00

1,092,382.00

1,054,085.00

25,141.00

25,515.00

26,305.00

27,701.00

31,998.00

32,276.00

1,934.00

1,926.00

1,937.00

1,969.00

2,079.00

1,973.00

North West

897,342.00

891,036.00

903,379.00

845,942.00

772,044.00

747,248.00

30,035.00

30,319.00

30,433.00

27,454.00

26,215.00

25,701.00

2,292.00

2,253.00

2,233.00

2,063.00

1,841.00

1,780.00

Northern Cape

196,731.00

202,010.00

209,000.00

210,152.00

261,736.00

265,647.00

6,484.00

6,179.00

6,180.00

6,641.00

8,706.00

8,580.00

476.00

454.00

438.00

430.00

622.00

613.00

Western Cape

945,239.00

956,836.00

978,718.00

980,065.00

978,517.00

968,327.00

27,259.00

27,248.00

27,450.00

32,447.00

32,825.00

31,908.00

1,595.00

1,597.00

1,590.00

1,580.00

1,579.00

1,527.00

National

11,917,017.00

12,038,922.00

12,176,391.00

12,217,765.00

12,293,758.00

12,401,217.00

360,155.00

362,598.00

362,042.00

382,133.00

385,860.00

394,225.00

27,647.00

26,845.00

26,879.00

26,592.00

26,269.00

26,065.00

Source: Education Statistics, 2007.20

20 Depar tment of Education, 2009. Education Statistics in South Africa 2007, p 14.

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CHAPTER 1

National senior certificate results

N ational senior certificate results In 2007, the overall national pass rate for full time learners with six or more subjects was 65.2%. A total of 564 775 learners wrote the exam, 317 615 learners passed with a normal pass, 41 692 learners passed with a merit pass and 8 910 passed with distinction with a total of 368 217 learners passing the exam. FEMALE

MALE

80.0 60.0 40.0 55.0

20.0

35.5

66.1

64.5

49.8

45.0

14.8

50.5

33.9

15.6

0.0 Wrote

Failed

Passed without Endorsement

Passed with Endorsement

Total Passed

Figure 3: Percentage distribution of Senior Certificate examination pass and failure rates, by gender, in 2007. Source: Education Statistics 2007: 24.21 The pass rate trend from 1997 to 2007 indicates that the national pass rate has increased from 47.4% in 1997 to 65.2% in 2007. The national pass rate stayed almost the same from 1997 (47.4%) to 1999 (48.9%) and then increased by 24.4% (real value) to its highest point in 2003 (73.3%), before decreasing by 8.1% to 65.2% in 2007.

Table 2: Comparison of pass rates of the Senior Certificate examination, by province, from 1997 to 2007. Pass Rates (%) Province

New

Old 1997

1998

1999

2000

2001

2002

2003

2004

2005

2006

2007

Eastern Cape

46.2

45.1

40.2

49.8

45.6

51.8

60.0

53.5

56.7

59.3

57.1

Free State

42.5

43.4

42.1

52.7

59.0

70.7

80.0

78.7

77.8

72.2

70.5

Gauteng

51.7

55.6

57.0

57.5

73.6

78.1

81.5

76.8

74.9

78.3

74.6

KwaZulu-Natal

53.7

50.3

50.7

57.2

62.8

70.8

77.2

74.0

70.5

65.7

63.8

Limpopo

31.9

35.2

37.5

51..4

59.5

69.5

70.0

70.6

64.9

55.7

58.0

Mpumalanga

46.0

52.7

48.3

53.2

46.9

55.8

58.2

61.8

58.6

65.3

60.7

North West

50.0

54.6

52.1

58.3

62.5

67.8

70.5

64.9

63.0

67.0

67.2

Northern Cape

63.8

65.4

64.3

71.2

84.2

89.9

90.7

83.4

78.9

76.8

70.3

Western Cape

76.2

79.0

78.8

80.6

82.7

86.5

87.1

85.0

84.4

83.7

80.6

National

47.4

49.3

48.9

57.9

61.7

68.9

73.3

70.7

68.3

66.6

65.2

Source: Education Statistics, 2007. 22

21 Depar tment of Education, 2009. Education Statistics in South Africa 2007, p 24. | 22 Depar tment of Education, 2009. Education Statistics in South Africa 2007, p 288.

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PUBLIC HIGHER EDUCATION INSTITUTIONS

P U B L I C H I G H ER EDUC ATION INSTITUTIONS In 2007, the overall national pass rate for full time learners with six or more subjects was 65.2%. A total of 564 775 learners wrote the exam, 317 615 learners passed with a normal pass, 41 692 learners passed with a merit pass and 8 910 passed with distinction with a total of 368 217 learners passing the exam. A total of 126 887 students graduated in 2007, with 36 637 students graduating in science, engineering and technology, 31 104 students in business and management, 28 332 students in education and 30 814 students in all other humanities and social sciences.

Table 4: Overview of South African public higher education institutions in 2007.

Headcount Student Enrolments

Institution

Cape Peninsula University of Technology

Black Students as a proportion of headcount totals (%)

Female students as proportion of headcount totals (%)

Proportion of contact and distance headcount enrolment in major fields of study (%)

Contact

Distance

Total

Contact

Distance

Contact

Distance

SET

Business

Humanities

28 883

28 953

University of Cape Town

21 188

n.a

Central University of Technology, Free State

10 275

202

10 477

Durban University of Technology

22 782

n.a

University of Fort Hare

8 584

273

8 857

University of the Free State

22 886

1 798

24 684

University of Johannesburg

41 420

320

41 740

University of KwaZulu-Natal

30 651

7 292

37 943

University of Limpopo

16 345

n.a

Nelson Mandela Metropolitan University

19 755

3 963

23 718

North West University

26 075

18 651

44 726

University of Pretoria

38 569

10 287

48 856

Rhodes University

6 052

6 075

100

778

238 803

239 581

University of South Africa University of Stellenbosch

22 799

n.a

Tshwane University of Technology

46 570

4 156

50 726

University of Venda

11 770

100

n.a

Vaal University of Technology

16 146

n.a

Walter Sisulu University

23 893

604

24 497

100

University of Western Cape

14 888

14 927

University of Witwatersrand

25 151

n.a

University of Zululand

9 318

n.a

Mangosuthu Technikon

9 828

100

n.a

474 606

286 481

761 087

TOTALS

Source: Education Statistics 2007: 30.23 23 Depar tment of Education, 2009. Education Statistics in South Africa 2007, p 30.

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CHAPTER 1

PUBLIC HIGHER EDUCATION INSTITUTIONS

KEY STATISTICS

The national average graduation rate is 15% for undergraduate degrees and diplomas, 19% for Masterâ&#x20AC;&#x2122;s degrees and 13% for Doctoral Degrees. Table 5: Graduates in public higher education institutions, by major field of study and formal qualification, in 2007. Major field of study Institution

Formal qualification

Science, Engineering and Technology

Business and Management

Education

All other Humanities and Social Sciences

Total

Undergradaute Certificates and Diplomas

Undergraduate Degrees

Post graduate below master's level

Master's Degree

Doctoral Degree

Total

Cape Peninsula University of Technology

2 968

2 566

646

726

6906

4 587

2 018

230

6 906

University of Cape Town

2 049

1 352

171

1 847

5 418

101

3 044

1 379

751

142

5 417

814

858

306

337

2 315

1 407

734

145

2 315

2 052

1 791

100

780

4 722

3 522

1 118

4 722

308

193

380

695

1 575

1 157

296

1 575

University of the Free State

1 353

615

1 097

1 634

4 699

519

1 939

1 685

479

4 699

University of Johannesburg

2 708

2 859

1 862

2 051

9 479

3 492

3 873

1 736

303

9 479

University of KwaZulu-Natal

2 184

1 895

1 214

2 284

7 577

606

4 680

1 524

661

106

7 577

University of Limpopo

1 357

728

1 200

800

4 084

1 047

2 241

529

250

4 084

Nelson Mandela Metropolitan University

1 307

1 018

2 679

983

5 988

3 275

1 990

427

261

5 988

North West University

1 974

1 446

5 685

2 241

11 345

4 812

3 646

2 145

618

124

11 345

University of Pretoria

3 619

1 903

2 866

2 514

10 902

1 697

5 200

2 740

1 095

170

10 902

Rhodes University

465

254

194

940

1 852

1 081

516

176

1 852

University of South Africa

867

4 289

5 012

4 198

14 364

3 977

5 889

3 804

616

14 364

University of Stellenbosch

2 140

1 375

326

1 899

5 740

2 907

1 778

902

153

5 740

Tshwane University of Technology

3 500

2 749

1 574

1 958

9 781

6 974

2 175

477

143

9 781

University of Venda

468

341

421

634

1 863

513

1 179

121

1 863

Vaal University of Technology

973

1 463

212

2 677

2 104

551

2 677

Walter Sisulu University

814

1 013

589

625

3 041

2 096

810

132

3 041

University of Western Cape

1 092

385

486

1 133

3 095

425

1 744

683

202

3 095

University of Witwatersrand

2 497

1 150

485

1 497

5 629

222

3 204

1 253

1 029

189

5 897

University of Zululand

277

148

1 013

548

1 987

206

1 152

560

1 987

Mangosuthu Technikon

852

716

280

1 848

1 792

1 848

36 637

31 104

28 332

30 814

126 887

43 418

52 388

22 190

7 829

1 329

127 154

Central University of Technology, Free State Durban University of Technology University of Fort Hare

TOTALS

Source: Education Statistics 2007:35.24

24 Depar tment of Education, 2009. Education Statistics in South Africa 2007, p 35.

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PUBLIC HIGHER EDUCATION INSTITUTIONS

Table 6: Summaries of key graduation rates in public higher education institutions in 2007. Undergraduate Degrees and Diplomas (%)

Master's Degrees (%)

Doctoral Degrees (%)

Cape Peninsula University of Technology

University of Cape Town

Central University of Technology, Free State

Durban University of Technology

University of Fort Hare

University of the Free State

University of Johannesburg

University of KwaZulu-Natal

University of Limpopo

Nelson Mandela Metropolitan University

North West University

University of Pretoria

Rhodes University

University of South Africa

University of Stellenbosch

Tshwane University of Technology

University of Venda

Vaal University of Technology

Walter Sisulu University

University of Western Cape

University of Witwatersrand

University of Zululand

Mangosuthu Technikon

Averages

Institution

Source: Education Statistics 2007.25

25 Depar tment of Education, 2009. Education Statistics in South Africa 2007, p 36.

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EDUCATION HANDBOOK

PUBLIC HIGHER EDUCATION INSTITUTIONS

KEY STATISTICS

The average undergraduate success rates vary according to race and format of learning. The national average success rate is 77% for contact learning compared to 57% for distance learning. For contact learning, the success rate for Black students is 74%, Coloured 76%, Indian/Asian 81%, White 85% and for distance, the success rates are 55% (Black African), 56% Coloured, 58% Indian/Asian and 65% White. Table 7: Undergraduate success rates of contact and distance mode students in public higher education institutions, by population group, in 2007. Contact (%) Institution

Distance (%)

Black African

Coloured

Indian/ Asian

White

Average

Black African

Coloured

Indian/ Asian

White

Average

Cape Peninsula University of Technology

University of Cape Town

n.a

Central University of Technology, Free State

Durban University of Technology

n.a

University of Fort Hare

100

n.a

100

University of the Free State

University of Johannesburg

100

University of KwaZulu-Natal

University of Limpopo

n.a

Nelson Mandela Metropolitan University

North West University

University of Pretoria

Rhodes University

n.a

University of South Africa

n.a.

University of Stellenbosch

n.a

Tshwane University of Technology

University of Venda

n.a

Vaal University of Technology

n.a

Walter Sisulu University

n.a

University of Western Cape

n.a

University of Witwatersrand

n.a

University of Zululand

n.a

Mangosuthu Technikon

n.a.

100

n.a

TOTALS

Source: Education Statistics 2007: 39.26 26 Depar tment of Education, 2009. Education Statistics in South Africa 2007, p 39.

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CHAPTER 1

PUBLIC HIGHER EDUCATION INSTITUTIONS

KEY STATISTICS

In 2007, there were 15 589 instruction and research staff, 22 224 administrative staff and 5 904 service staff. Of these staff, 39% of the instruction and research staff, 59% of the administrative staff and 97% of the service staff were black. The statistics also indicated imbalances in gender parity with only 43% of the instruction and research staff being female, compared to 61% of the administrative staff. Table 7: Overview of permanent staff in public higher education institutions in 2007. Total Permanent Staff

% of black Staff in Total

Institution

% of Female Staff in Total

Instruction & Research Staff

Administrative Staff

Ser vice Staff

Instruction & Research Staff

Administrative Staff

Ser vice Staff

Instruction & Research Staff

Administrative Staff

Ser vice Staff

Cape Peninsula University of Technology

657

801

155

University of Cape Town

889

1806

106

Central University of Technology, Free State

224

306

156

Durban University of Technology

574

664

109

100

University of For t Hare

292

446

100

University of the Free State

708

807

336

University of Johannesburg

871

1110

482

University of KwaZulu-Natal

1531

2331

400

University of Limpopo

534

724

481

100

Nelson Mandela Metropolitan University

528

875

Nor th West University

889

1375

475

University of Pretoria

1619

1375

518

Rhodes University

320

564

407

100

University of South Africa

1335

2561

168

University of Stellenbosch

840

1381

306

Tshwane University of Technology

819

1272

433

University of Venda

278

269

195

100

Vaal University of Technology

287

368

247

Walter Sisulu University

526

634

102

100

University of Western Cape

516

692

100

University of Witwatersrand

989

1353

348

100

University of Zululand

231

339

169

100

Mangosuthu Technikon

132

171

122

100

15589

22224

5904

TOTALS

Source: Education Statistics 2007.27 27 Depar tment of Education, 2009. Education Statistics in South Africa 2007, p 41.

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PUBLIC HIGHER EDUCATION INSTITUTIONS

KEY STATISTICS

70.00% 60.00% 59.40%

50.00% 40.00% 30.00%

36.60%

60. 6 0 %

42.80%

20.00% 10.00% 0.00% Black Academic Staff

Female Academic Staff

Black Admin Staff

Female Admin Staff

Figure 3: Percentage distribution of Black and female staff in public higher education institutions, as a percentage of total permanent staff, in 2007. Source: Education Statistics 2007: 42.32

Education budget GDP growth has been growing at almost 5% per year for the past few years, where growth had stagnated previously. In 2006/07, revenue was R475,8 billion and education was allocated R105.5 billion.28 This allocation has grown from R31.1 billion in 1995 to the current R105,5 billion in 2007, which represents 5,3% of GDP and 18% of consolidated government expenditure.29 These propor tions have been declining over the past decade, from 7% of GDP in 1996, but the economy has grown, resulting in a real growth in education spending of 49% from 1994 to 2005. 30 When compared to similar countries, this spend is high at face value (as % of GDP) although it is below the quoted United Nations Educational, Scientific and Cultural Organization (UNESCO) benchmark of 6%. It is also argued that this high propor tion is mostly due to the relatively high level of teacher salaries and that spending on other inputs seems to be below some international norms.31 Provincial (mostly school level education) and national education spending (mainly higher education institutions) will be growing at

28 30 33 34 36

more than 5% per year in real terms over the next 3 years, according to the medium-term expenditure framework (MTEF) budgets. 86,5% of education expenditure on public schools comes from provincial level, with the balance being provided at national level. Whilst education expenditure has risen in real terms since 1994, with education representing 5.3% of GDP in 2006/07, this is below the recommended UNESCO figure of 6% for developing countries.33 In 2007, the national average per capita learner expenditure in public schools was R5 787.34 Expenditure for higher education is about 13.5% of the total national expenditure on education.

K ey trends in education spend Real spending has escalated quite rapidly in recent years (above 5% per year) and will continue to do so, despite education spending becoming a smaller propor tion of GDP and consolidated government expenditure. Personnel costs, par ticularly the costs of teachersâ&#x20AC;&#x2122; salaries, dominate education budgets and the government policy targets an 80:20 personnel to non personnel spending ratio. Personnel expenditure has declined from over 90% of total education expenditure (mid/late 1990â&#x20AC;&#x2122;s) to below 80% in 2006/07. This has allowed for an increased spend on non-personnel items such as learner suppor t materials, stationer y, maintenance, utilities and infra-structure. 35 Learner number growth is also below real expenditure growth, which allows per learner expenditure to grow. There has been significant improvement in funding equity between provinces and schools, as increased real funding interacted with pro-poor funding norms. 36 Concentration ratios have equalised rapidly and public spending per African learner has increased by 75% between 1991 and 2005.37 However, the impact of this funding shift has been questioned in terms of real educational oppor tunities and adequacy.

National Treasury (2007), Estimate of National Revenue 2007, p1-4. | 29 OECD (2007), Review of National Policies for Education South Africa, p 41, OECD, Paris. Depar tment of Education, 2006d, p16. | 31 Depar tment of Education, 2006d, p 28. | 32 Depar tment of Education, 2009. Education Statistics in South Africa 2007, p 42. OECD (2007), Review of National Policies for Education South Africa, p 128, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 26, OECD, Paris. | 35 Motala,S., et al., 2007, section 7.2.3.3. South African Schools Act, 1996. | 37 Gustafsson, 2007.

CHAPTER 1

EDUCATION HANDBOOK

CHAPTER 1

CHAPTER 2 Education in Context

Time to Connect

HISTORICAL PERSPECTIVE

SOCIO-ECONOMIC CONTEXT

HUNGER

THE NATIONAL NUTRITION PROGRAMME

ACHIEVEMENTS

HEALTH IN EDUCATION

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about the key repor ts, issues and initiatives

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CHAPTER 2 EDUCATION IN CONTEXT

Historical perspective

Education is defined both by the past and the current socio-economic conditions which reflect the environment in which education reform is being implemented. This section provides a historical perspective to inform our perceptions on education and highlights the achievements to date. It also provides an over view of the socioeconomic conditions which impact on education and highlights the need for a systemic approach to improving education. This requires collaboration with a number of stakeholders to develop integrated sites of learning. H istorical perspective 1953 The National Par ty government brought education for black South Africans under central government and systematically reinforced decades of racially and geographically segregated schooling.

1973 The struggle against apar theid by secondary school students forced the government into a series of political and economic reforms.

1986 A State of Emergency was declared by the Government. At this time, the government was spending “9 times more on each white learner than it spent on learners in the worst off Bantustans”.1

1990-1994 A period of negotiations between the ANC and the National Par ty Government with the economy stagnating. Education continued to deteriorate.

1994

Since 1994, the Government has worked to transform all facets of the education system, by: • Replacing the fragmented and racially duplicated institutions with a single national system and nine provincial systems. The key focus is on making education structurally accessible and to realise the ideal of nine years of compulsory schooling. Education financing has been redirected towards considerations of equity, redress, accessibility and affordability. School governance has been decentralised to be more inclusive of communities. The Higher Education system has been reformed and rationalised and a new fur ther education and training (FET) system has been established. • A new curriculum has been introduced and streamlined with the focus on knowledge and skills and based on the values of the constitution. The 1996 constitution required that education be transformed and democratised to align with the values of human dignity, equality, human rights and freedom, non-racism and non-sexism and to guarantee the right to basic Education For All (EFA). Procedures have been set in place to monitor educational quality. • This led to the National Education Policy Act of 1996, which empowers the Minister of Education, working with the provinces, to set the political agenda, and determine the national norms and standards for education planning, provision, governance, monitoring and evaluation. The provincial depar tments are responsible for implementation of this policy and programmes aligned to the national goals. 3

Government of National Unity elected. At this stage, there were 12 million students at 27 500 educational institutions, including 330 000 students at the 21 universities and 137 000 students at the 15 technikons with a staff compliment of 470 000 (370 000 being teachers). A budget of R30 billion was allocated in 1994/95 (22.5% of total budget and 7% of GDP).2 3 OECD (2007), Review of National Policies for Education South Africa, p 37-39, OECD, Paris.

1 Depar tment of Education, 2005a, p 1 | 2 Depar tment of Education, 1995. Chapter11, Sections 10 and 11.

CHAPTER 2 EDUCATION IN CONTEXT

EDUCATION HANDBOOK

CHAPTER 2 EDUCATION IN CONTEXT

Historical perspective

One of the striking features of the education system, post-elections, was the range of education legislation that was enacted. Examples of this legislation include: • The Reconstruction and Development Programme (RDP) of 1994 proposed largescale human resource development, followed by the Growth, Employment and Redistribution (GEAR) macroeconomic strategy and then the Accelerated Shared Growth Initiative – South Africa (AsgiSA). The underlying principle within these strategies relates to the need for skills development to suppor t economic growth, which is a necessary precondition for South Africa’s continued transformation.4 • The South African Qualifications Authority Act (SAQA) of 1995, which facilitated the establishment of the National Qualifications Framework (NQF). This framework forms the structure for a national learning system, integrating education and training at all levels. SAQA overseas the setting of standards and quality assurance, records learners’ achievements and registers qualifications on the NQF. • National collective bargaining is under taken in the Education Labour Relations Council between depar tments of education and teachers’ unions, in terms of the Labour Relations Act of 1995. • The South African Schools Act (SASA) of 1996 set out the aspirations for a unified, national 4 5 7 9 10 11

Historical perspective

education system and provides the fundamental principles underlying the education policy framework, which is influenced by the UN Universal Declaration of Human rights as well as the Convention on the Rights of the Child – signed by South Africa in 1995.5 • The National Education Policy Act (1996) set out the new framework by which the system would be governed, through a concurrent mode of governance, with the national Depar tment of Education (DoE) responsible for higher education and policy formulation for the whole system and the nine provincial depar tments responsible for implementation of policy. The provinces would provide support resources to schools, which would be governed by democratically elected school governing bodies (SGB’s).6 • The Higher Education Act (1997), which provides for a single, nationally co-ordinated system of higher education, overseen and quality assured by the Council on Higher Education (CHE).7 • The Employment of Educators Act of 1998, which governs the terms and conditions of employment for teachers in public schools. • The Further Education and Training Act (1998) and updated in 2006. • The Skills Development Act of 1998 administers a statutory National Skills Authority and 24 statutory Sector Education and Training Authorities (SETAs) across all sectors of the economy.

• The National Student Financial Aid Scheme Act of 1999, which provides for the granting and administration of loans and bursaries to eligible students at public higher education institutions.8 • The Adult Basic Education and Training Act, (no. 52 of 2000), which provides for the establishment of public and private learning centres, funding, governance and quality assurance.9 • The South African Council of Educators (SACE), which is governed by its own act of 2000, which governs the registration and professional development of teachers and the setting, maintenance and protection of ethical and professional standards. The ministers of labour and education have joint responsibility for the Human Resource Development Strategy for South Africa, which was first published in 2001, as a collaborative effort between the Departments of Education and Labour. This strategy has been revised in 2007, with the final draft being approved by Cabinet in 2008. This strategy is effective from April 2009 and is aimed at formalising many of the initiatives and structures developed under the Joint Initiative for Priority Skills Acquisition (JIPSA), launched by the Deputy President in 2006, which ended in March 2009.10 • The General and Further Education and Training Quality Assurance Act of 2001 makes provision for Umalusi, the statutory body for quality assurance and cer tification for all non-higher education (GET and FET bands).11

OECD (2007), Review of National Policies for Education South Africa, p 96-97, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 137, OECD, Paris. | 6 OECD (2007), Review of National Policies for Education South Africa, p 126, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 45, OECD, Paris. | 8 OECD (2007), Review of National Policies for Education South Africa, p 40, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 40, OECD, Paris. Department of Education (2007), FET Colleges: Institutes of First Choice - Your Guide to a Changing Sector, Rainbow SA, Pretoria, p 65. OECD (2007), Review of National Policies for Education South Africa, p 40, OECD, Paris.

CHAPTER 2 EDUCATION IN CONTEXT

EDUCATION HANDBOOK

• Early childhood development falls under the White Paper of 2001, which aims to achieve full par ticipation of 5 year olds in grade R education by 2010. • The Education White Paper 6 on Inclusive Education (2001) focuses on special needs learners.12 • The revised National Curriculum Statement (NCS) was adopted in 2002, and has been gradually phased in with grade 12 in 2008. • The Further Education and Training Colleges Act of 2006 aims to regulate fur ther education and training (all learning programmes leading to qualifications at level 2-4 of the NQF, which represents the secondary component of schooling (grades 10-12) as well as Fur ther Education and Training (FET) colleges. These three years of schooling are not compulsory, but Government is constitutionally obliged to make this training progressively available. The FET colleges have been rationalised from 152 in 2002 to 50 public FET colleges.13 • The National Protocol on Assessment, which regulates the recording and repor ting of learner achievement, has been finalised and gazetted.14 In the space of 14 years, a far more equitable, efficient and better quality system of education has been created.15

12 OECD (2007), Review of National Policies for Education South Africa, p 40, OECD, Paris. 13 OECD (2007), Review of National Policies for Education South Africa, p 40, OECD, Paris. 14 OECD (2007), Review of National Policies for Education South Africa, p 41, OECD, Paris. 15 OECD (2007), Review of National Policies for Education South Africa, p 39, OECD, Paris.

EDUCATION HANDBOOK

CHAPTER 2 EDUCATION IN CONTEXT

Socio economic context

S ocio economic contexT

Poverty is endemic in South Africa, as indicated by:16 43.3% of households do not have modern sanitation, 21.3% of households do not have electricity, 13.9% of households do not have access to piped water. Pover ty is acute on the urban fringes and in the rural areas, which represents about 45% of the population, consisting mainly of young children and older relatives, who are very poor and surviving on pensions and child grants and lack formal schooling. Pover ty directly affects the affordability of, access to and potential benefits from education. If a child is hungry and has no access to electricity, it will undermine the value of education. Education is essential to addressing pover ty as it acts as an enabler to break the cycle of pover ty.17 Government is addressing these high levels of pover ty. Household access to social grants has almost trebled between 1995 and 2003, from 11.6% of households to 32.8%18. However, studies suggest that approximately 22% of children aged 0 to 14, who are eligible to receive child suppor t, are not receiving it.19 A poor child is often a hungry child, which impacts immediately on school attendance and performance. In 2003, 7% of children were always or often hungry and 17% of them were sometimes hungry.20

16 17 20 21

On Wednesday 20 Februar y 2008, Trevor Manuel made his budget speech in parliament and announced government’s spending on social security would receive a R13.2 billion boost in 2009 to provide some measure of protection to poor South Africans during the economic slowdown. Fur ther to this, the extension of the CSG to 15 years, will also take effect this year. Posted on: 2009-02-11 15:53:01 The Voice of the Cape website.

Based on 2003 figures, Depar tment of Education, 2006f, p 9-12, 25. Department of Education, 2006d, p 76. | 18 Department of Education, 2006f, p 19. | 19 Monson, et al., 2006. OECD (2007), Review of National Policies for Education South Africa, p 33-34, OECD, Paris. Polity.org.za, National Budget Speech 2008 by South African Finance Minister Trevor Manuel, 20 February 2008, http://www.polity.org.za/print-version/national-budget-speech-2008-by-south-african-finance-minister-trevor manuel-20022008-2008-02-20.

CHAPTER 2 EDUCATION IN CONTEXT

“Pover ty directly affects the affordability of, access to and potential benefits from education. If a child is hungr y and has no access to electr icity, it will under mine the value of education.” 17

EDUCATION HANDBOOK

CHAPTER 2 EDUCATION IN CONTEXT

Hunger AND The National School Nutrition Programme

H unger In 2003, children in 7% of households were always or often hungry, 17% were sometimes hungry with 92.2% (about 3.4 million) of children aged between 7-18 who are hungry on a regular basis and continued to attend school. In the Eastern Cape, children in 38% of households were always, often or sometimes hungry.22

T he N ational School N utrition P rogramme This programme was introduced in 1994 as one of the first Presidential Lead Projects, and since 2004, the DoE has been responsible for the programme. It is considered to be one of the primary drivers for improving learning conditions and school attendance as the schools act as the distribution system for the programme. R1 billion was invested in 2006/7 in the National School Nutrition Programme23, to ensure that the poorest learners got at least one meal a day with 6 million meals being served at 18 000 schools in 2006.24 This programme is aimed at:

The programme also encourages community involvement in the delivery of food to children, which strengthens community par ticipation. The programme is financed by a conditional grant from the National Treasury, administered by the DoE, to the value of R1,153 billion in 2007/08. With an average annual increase of 4.6%, this conditional grant is insufficient to address inflation in basic food prices. The targeting strategy for this programme is to identify geographic areas where pover ty levels are high and prioritise areas according to the severity of pover ty and then identify needy schools within these areas. The minimum policy is to feed children from grade R up to 7 for 156 of the 196 schools days per year.25

The targeting of the programme has two stages: 1. Whole schools are selected to par ticipate. 2. Within selected schools, learners are selected (mainly on the basis of age or grade).

Table 8: Schools and learners on the National Schools Nutrition Programme and its financial performance. Province

Allocation

Expenditure

% Spent

Schools

Learners

R 233 882

R 166 642

62.62%

5 046

1 461 917

R 64 784

R 80 078

110.19%

1 643

407 743

R 99 921

R 98 262

98.34%

1 122

389 361

KZN

R 239 372

R 254 404

80.67%

3 453

1 367 656

• reducing hunger, LP

R 202 039

R 212 363

105.11%

2 711

1 054 609

• alleviating the affect of malnutrition on the capacity to learn,

R 84 549

R 83 100

98.29%

1 321

492 025

R 29 647w

R 29 199

91.50%

319

128 452

• improving school attendance and punctuality and

R 95 529

R 120 635

118.97%

1 269

481 986

R 48 313

R 45 956

95.12%

873

203 183

Total

R 1 098 036

R 1 090 639

95.65%

17 757

5, 986 931

• improving general well-being.

Source: Briefing on National School Nutrition Programme 2007: 25.26

Achievements In 2006/07, 5, 986 931 learners in 17 757 schools received meals (budget of R1,098 billion), which is above the target of 60% of the poorest learners.27 All schools par ticipating in the programme are encouraged to keep a vegetable garden with about 6 226 gardens currently in place. Gardening workshops were conducted in 2007 and reached 3 685 teachers, 1 125 parents and 1 811 learners to encourage this initiative.28 The OECD review identified issues of inefficiency of the delivery service, especially in rural areas, where road networks were limited. There are also concerns about the lack of accountability to the SGB and parents and the fact that food often “disappears” from schools or is diver ted to unintended beneficiaries. Fur thermore, there are cases of mismanagement and allegations of largescale collusion and fraud in tendering and contracting procedures.

The OECD review suppor ts improved school-based and provincial accountability, tighter procurement and contracting controls and supplier payment transparency, so that funds available for school funding can be shown to benefit hungry children.29

22 OECD (2007), Review of National Policies for Education South Africa, p 34, OECD, Paris. 23 Parliamentary Monetary Group. Minutes on National School Nutrition Programme, 14 May 2007, http://www.pmg.org.za/minutes/20070514-national-school-nutrition-programme-conditional-grants-life-skills-hiv-aids-conditi. 24 Depar tment of Education, 2003d, p 56; Depar tment of Education, 2007e. | 25 Monson, et.al., 2006. 26 Parliamentary Monitoring Group. Briefing on National Schools Nutrition Programme, Portfolio Committee on Education, 15 May 2007. http://www.pmg.org.za/docs/2007/070515nsnp.ppt.

27 Depar tment of Education, 2006/2007a, p 25. 28 Depar tment of Education, 2006/2007a. 29 OECD (2007), Review of National Policies for Education South Africa, p 164, OECD, Paris.

EDUCATION HANDBOOK

CHAPTER 2 EDUCATION IN CONTEXT

EDUCATION HANDBOOK

“In 2003, 7% of children were always or often hungr y and 17% of them were sometimes hungr y. 22 ”

Socio economic context

CHAPTER 2 EDUCATION IN CONTEXT

Health in education, Safety in schools AND Promoting social cohesion

H ealth in education

Safety in schools

The DoE recognises the impor tance of promoting good health among learners and has developed a national framework on health and wellness, to improve the understanding of health-related issues amongst teachers and learners.

One of the biggest challenges facing the education system is ensuring the safety of teachers and learners in schools. In 2007, the DoE, with the suppor t of the Royal Netherlands Embassy and the Centre for Justice and Crime Prevention (CJCP), identified nine schools who received safety infrastructure suppor t.33

Examples include: • Peer education programmes to educate youth about HIV/AIDS. • Guidelines for the management and prevention of drug abuse by learners. • 42 000 health and hygiene playing cards and 18 403 training files on food safety have been distributed to provinces for distribution at schools.

One of the key health issues is the prevalence of HIV/AIDS in the teaching community and the impact of this disease on children, who are losing parents to the disease. 12.7% of teachers are HIV-positive, compared to the national estimated HIV-prevalence rate of 11% (5.3 million).30 In 2003, 17.4% of children (over 2 million children) had lost one parent, while 3% (371 000) of children had lost both parents.31 This impacts on school attendance as children need to remain at home to look after sick relatives. Children also leave school to work to suppor t households affected by HIV/AIDS. The HIV infection rate is about 5.4% of children aged 2-18. 32

30 31 32 34

Socio economic context

Promoting social cohesion The DoE has been focusing on strengthening social cohesion and racial integration by organising events to commemorate significant days and producing materials, such as My Country, South Africa34 and Opening Our Eyes, a training manual for addressing gender-based violence in schools.35

“The high prevalence of violence in our schools which manifest itself in the form of substance abuse, rape assault, vandalism and theft had prompted the DoE to resuscitate the school safety programme in par tnership with the Depar tment of Safety and Security.”36

“77% of children in South African schools do not feel safe in the classroom (2007 Survey).” Source: Education Roadmap; Focus on schooling System, DBSA, November 2008.

2003 statistics, Shisana, et al., 2005. OECD (2007), Review of National Policies for Education South Africa, p 21, OECD, Paris. Motala, et al., 2007. | 33 OECD (2007), Review of National Policies for Education South Africa, p 62, OECD, Paris. Depar tment of Education, 2006g. | 35 Depar tment of Education, 2001c. | 36 Makgato, 2007.

CHAPTER 2 EDUCATION IN CONTEXT

EDUCATION HANDBOOK

CHAPTER 2 EDUCATION IN CONTEXT

Infrastructure AND challenges to be addressed

Socio economic context

I nfrastructure

Transport

After a period of relative neglect, education infrastructure spending is now being addressed with an increase from R1 billion (2002/03) to R2,5 billion (2005/06) and expected spend of R4 billion for 2008/09.37

The inequalities inherited from Apar theid education provision means that as many as 6% of children live an hour or more away from the closest school. 81% of learners walk to school with only 7% using public transpor t.39

The 2006 National Education Infrastructure Management System (NEIMS) study has confirmed significant progress in key infrastructure areas since 2000:

1996

2006

Overcrowding in schools has dropped.

51%

24%

Schools with electricity have increased.

11 715

20 713

Schools without toilets have decreased.

3 245

1 532

I nfrastructure challenges to be addressed

In 2006, the DoE under took a study on learner transpor t with the aim of assessing the status quo. This study provided a base to develop guidelines to assist provincial education depar tments and other stakeholders in promoting access to education through learner transpor t assistance schemes. The study found that provincial budgets for learner transpor t ranged from less than R1 million to R107 million, with 193 250 learners benefitting from transpor t assistance provided by government. 40

Despite these achievements, there are still critical challenges to be addressed. Infrastructure development has also been undermined by learner migration, which contributes to classroom shor tages and surpluses in different areas.

In 2003, 319 000 learners (7-18 age group) walked more than 5 kilometres to school.41

Critical areas still to be addressed include: 3 152 (12.6%) schools have no source of water at or near the school.

I nformation and communication technologies ( I C T )

1 532 (6%) schools do not have toilets on site and 3 824 (15%) schools have more than 50 learners per toilet. 4 297 (17%) of schools have no electricity at or near the school. Only 1 813 (7.22%) schools have library spaces that are adequately stocked. 17 065 (68%) schools have no computers. Nearly 63% secondary schools have no laboratory space with only 10% schools having adequately stocked laboratory space. 10 475 (42%) schools have no fencing or their fencing is in poor condition. The DoE is currently developing a policy framework for school infrastructure that will include norms and standards to address the existing challenges highlighted in the NEIMS study. This will allow for a more comprehensive and rational infrastructure investment strategy to be developed.

Whilst ICT is not a magic solution to providing access to education, it does offer the possibility of bridging distances and bringing exper t teaching to remote areas. The draft White Paper on E-education acknowledges that â&#x20AC;&#x153;the lack of developed infrastructure for information and communication technologies exacerbated the gap between Africa and the developed worldâ&#x20AC;?. 42

The OECD review team identified that there is a lack of clear, concrete objectives and planning to address the critical issue of infrastructural backlog. The OECD recommends that this issue becomes a national priority, which could provide an excellent opportunity for both national and provincial government to establish a co-operative initiative. 38

39 40 41 42

37 OECD (2007), Review of National Policies for Education South Africa, p 106, OECD, Paris. 38 OECD (2007), Review of National Policies for Education South Africa, p 108-110, OECD, Paris.

CHAPTER 2 EDUCATION IN CONTEXT

EDUCATION HANDBOOK

Depar tment Depar tment Depar tment Depar tment

of of of of

Education, 2003d, p 86. Government, 2006b. Education, 2006f, p 43. Education, 2003a, section 1.8.

EDUCATION HANDBOOK

CHAPTER 2 EDUCATION IN CONTEXT

Madam Speaker, the Socio economic context quantum of the rands and cents allocated to these programmes is not what provides relief. No, we can only be satisfied when we know that the quality of life of the poor is improving, that children are being properly educated, that learners have access to food in schools , that mothers visiting clinics get proper and dignified treatment, that the criminal justice system is putting those who rob and thieve behind bars. It’s what the money buys that matters, and so fixations with the size of deficits or surpluses are illusory detours.43

Highlights from the 2009 National Budget

H ighlights from the 2009 National Budget “In this budget, we are able to announce several steps in extending social security over the period ahead. The social grant increases this year match or exceed inflation, and take into account the disproportionate impact of price increases on the poor. The maximum values of the disability and old age grants will increase by R70 a month to R940 in April this year, while the CSG will increase by R10 in April and by a fur ther R10 in October, to R220 a month. Together with measures to extend the social security net, the additional social assistance cost amounts to R12 billion over the next three years. The total number of grant beneficiaries is 12.4 million, and expenditure on social assistance will be R75.3 billion next year....The CSG will be extended to include children up to their 15th birthday with effect from January 2009. The Minister of Social Development has indicated the need to review eligibility criteria or conditions, in line with practice in many countries, aimed at reinforcing the responsibilities of caregivers towards benefiting children. These might include regular school attendance, for example, or immunisation of children in keeping with health requirements. There is rightly public interest in these matters, and we should ask this House to lead an active debate.” 43 The largest adjustments to spending plans go to poverty reduction: R25 billion is added to the budgets of provinces, mainly for education and health care, and R13 billion for social assistance grants and their administration. R4 billion is added to the school nutrition programme and R2.5 billion goes to municipalities for basic services.

Education Government’s contribution to public education remains our single largest investment, because we know that it is the key to reducing pover ty and accelerating long-term economic growth. Education spending has grown by 14 per cent a year for the past three years and accounts for R140.4 billion in the spending plans of provinces and national government for 2008/09. We received a tip from Mr. Xolani Notshe of Port Elizabeth thanking us for allocating money to libraries. He says “libraries are central in community development. Libraries will assist your successor to collect more taxes because we would be an educated and skilled nation”. I agree entirely. Key priorities in education include extending the no-fee schools policy to 60 per cent of schools, from 40 per cent at present, expanding the school nutrition programme, reducing average class sizes in schools serving lower income communities, increasing expenditure on school buildings, strengthening training programmes and recapitalising technical high schools over the next three years. An additional R700 million is allocated for higher education subsidies and to accommodate the anticipated growth in student enrolment from 783 900 last year to 836 800 in 2011. The National Student

Financial Aid Scheme receives an additional R330 million. Funding is provided for a new National Education Evaluation Unit. Many South Africans will agree, I am sure, with Mr. Paul King who writes, “Regarding the salaries of teachers, I personally feel that we do not reward them enough for what they do and what we expect from them in terms of the daily care and education of our children.” Madam Speaker, a new salary dispensation for teachers was introduced last year, linked to school and teachers performance, hence the urgency of establishing this new Evaluation Unit.

S ocial grants The budget adds R13.2 billion to our social grants programme. The extension of the CSG to 15 takes effect this year and the reduction in the eligible age for men to 60 is in progress. Strengthening our social security safety net is critical during this period when many more poor families are vulnerable. With effect from April this year, the maximum values of the old age, disability and CDGs will rise by R50 to R1010 a month, the foster care g rant will increase to R680 and child support will rise to R240 a month. Compelling evidence that the phasing-in of the CSG has contributed significantly to reducing child poverty, has emerged in recent research, and so consideration is being given, subject to affordability, to the extension of the CSG to the age of 18.

43 Grant Thornton, 2009 Budget Speech, http://www.gt.co.za/Publication/Budget09/speech.asp.

CHAPTER 2 EDUCATION IN CONTEXT

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CHAPTER 2 EDUCATION IN CONTEXT

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INTRODUCTION AND OVERVIEW

KEY Achievements

After the democratic elections in 1994, the government inherited a fragmented education and training system with embedded inequality, which reflected serious underinvestment. The new regime placed a priority on the transformation of the education system, as integral to the development of a democratic society. This priority led to the restructuring of the entire education and training system to overcome the racial, gender and anti-poor bias to ensure alignment with the new constitution. The Government identified that sustained economic growth is essential for societal transformation and one of the priority areas for supporting economic growth was skills development to ensure sufficient and relevant skills to support growth and transformation. According to Kraak (2007),1 there continues to be a disconnection between employment oppor tunities and the needs of the economy. In the past few years, the rate of economic growth is outstripping the ability of institutions to provide the necessary skills for this growth.

“Education is the great engine of personal development. It is through education that the daughter of a peasant can become a doctor, that a son of a mineworker can become the head of the mine, that a child of farm workers can become the president of a countr y.”

To address this challenge, the Government has identified that the major drivers for the Vocational Education and Training (VET) strategy are “employability, entrepreneurship, efficiency and sustainability, the suppor t of economic development and the creation of national wealth and contributing to pover ty alleviation.”2 This strategy addresses the fact that young people are the dominant group of unemployed (70%) and represent the largest group of long-term unemployed individuals.3

1 Kraak, A. (2007), “The Education - Economy Relationship in South Africa, 2001-2005,” in A. Kraak and K. Press (eds.), Human Resources Development Review 2008: Education, Employment and Skills in South Africa, HSRC Press, Cape Town. 2 OECD (2007), Review of National Policies for Education South Africa, p 244, OECD, Paris. 3 Depar tment of Labour, n.d.-c, p 9.

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Vocational Education and Training

KEY Achievements

The National Human Resource Development Strategy (NHRDS)

Vocational Education and Training (VET)

T he National Human R esource Development Strategy (NHRDS)

This training has lagged behind in the promotion of human resource development, resulting in a serious skills shor tage in South Africa. This has been compounded by the mismatch between the training that has been offered and the needs of the economy. 4

The NHRDS provides an overarching plan to co-ordinate the efforts of the private and public sector in developing education and skills development.The NHRDS co-ordinates education, skills development, the supply and demand forecasting for skills, employment growth and the national systems for innovation and research and development.

The National Skills Development Strategy (NSDS) has been developed to address this challenge, and this strategy guides the strategic planning of the DoL, the National Skills Fund, the SETA’s and related agencies and represents a broad stakeholder view of national principles, priorities, objectives and success indicators to guide skills development. 5

The purpose of this strategy is to ensure effective co-ordination and integration of policies across government depar tments, with individual responsibility remaining within each ministry, whilst ensuring a common strategic framework to enable policy development.7 The key success indicator of the NHRDS is improvement in the Human Development Index (HDI) for South Africa, which measures literacy, educational attainment, life expectancy and GDP per capita. The HDI is used as a standard assessment of human development by the United National Development Program to categorise countries into developing and developed nations and South Africa is ranked 121 in the world. This raises concern, as the ranking is lower than the 2001 ranking of 103 at the time of the launch of the NHRDS.8

The NSDS is developed through a consultative process organised by the National Skills Authority, which is established by the Minister of Labour, and includes representatives from the government, business, labour, community and skills development specialists. 6

This initiative identified the following objectives to be achieved by 2010: • Increase the number of engineers graduating from higher education by 1000 to 2 400 per year. • Increase the number of ar tisans from 5 000 to 12 500 per year, by improving communication about the various pathways for learners, including apprenticeships, learnerships and the new FET qualifications.

4 OECD (2007), Review of National Policies for Education South Africa, p 131, OECD, Paris. 5 Department of Education (2007), FET Colleges: Institutes of First Choice - Your Guide to a Changing Sector, Rainbow SA, Pretoria, p 81. 6 Depar tment of Education (2007), FET Colleges: Institutes of First Choice - Your Guide to a Changing Sector, Rainbow SA, Pretoria, p 81.

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• Improve the competitiveness of the tourism sector, by developing programmes to deal with skills shor tages in this sector.

• At least 500 enterprises will achieve a national standard of good practice in skills development and will be refunded 50% of the levy.

• Address the issue of ICT skills shortages.

• At least 700 000 workers will have achieved at least ABET level 4.

• Strengthen town and regional planning capacity. • Train young unemployed people from disadvantaged backgrounds for business outsourcing. • Address the mismatch between unemployed black graduates and the skills required by the economy through the organisation of job placement initiatives. The revised NHRDS has a strong economic and social focus and includes the following features: • The Minister of Education is now responsible for the NHRDS, replacing the previous joint responsibility between the Ministers of Education and Labour. • The aim is to promote multistakeholder par ticipation across nine strategic priorities, which are defined in time frames and annual targets. • A 20 year planning perspective, a five year strategic year plan and a one year implementation plan. The NSDS strategy is developed in five year plans, with the first phase from 2001-2005, followed by the second phase of 2005-2010, which has the following quantitative targets: • At least 80% of government depar tments are to spend 1% of payroll on training and the related impact is to be measured and repor ted.

• SETA discretionary grants to include grants for learnerships and bursaries. To encourage skills development in the workplace, the Government has introduced a skills development levy (1% of payroll) for any registered company in South Africa. This levy can be par tially refunded to the company on proof that training has been completed by accredited training providers. Companies submit workplace skills plans and implementation repor ts to enable them to claim back some of the levy. The National Skills Development Strategy foresees an increase in the skills development levy from 1% to 3%.9 The OECD review suggested that the SETA’s system of grants to employers is too complex and bureaucratic, which undermines the investment in HR development. A survey was conducted on 505 enterprises and of the 51% of enterprises who were eligible to pay the levy, only 16% were claiming grants.10 The third phase of the NSDS begins in April 2010. The NSDS informs the National Human Development Strategy (NHRDS), and focuses on the human resource development elements that relate to vocational training and skills development in the workplace. The reasons cited for not claiming the grant, included: • A lack of awareness of the process, • Not wor th the effor t financially and • The application process is too complex.11

Depar tment of Education (2007), FET Colleges: Institutes of First Choice - Your Guide to a Changing Sector, Rainbow SA, Pretoria, p 65. Depar tment of Education (2007), FET Colleges: Institutes of First Choice - Your Guide to a Changing Sector, Rainbow SA, Pretoria, p 65. OECD (2007), Review of National Policies for Education South Africa, p 239, OECD, Paris. Depar tment of Labour, n.d.-a, p 36. | 11 OECD (2007), Review of National Policies for Education South Africa, p 253, OECD, Paris.

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The Accelerated Shared Growth Initiative (AsgiSA)

T he Accelerated S hared G rowth Initiative (AsgiSA) The current economic strategy, which is focused on AsgiSA, is aimed at halving pover ty and unemployment by 2014 and the skills shor tage is identified in this strategy as a key barrier to achieving this target. The strategy identified key measures for education and skills development to address the skills shortages, including: • Achieving high levels of literacy and numeracy; • Increasing mathematics and science high school graduates to 50 000 by 2008; • Upgrading career guidance programmes; • Upgrading FET colleges; • Revamping ABET programmes. • Other interventions include the development of an Employment Services system to align potential employers and employees.

B road B ased B lack E conomic Empowerment ( B BBEE) Another strategy for addressing social inequity is the Broad Based Black Economic Empowerment (BBBEE), which was adopted as a framework in 2003. The aim is to encourage South Africans who were previously disadvantaged to be more involved in the formal economy. Skills development,

direct empowerment (equity and management control) and social investment are critical areas on the scorecard. This strategy is in response to a recent repor t that indicates that while economic growth has risen significantly in South Africa, societal inequality continues to broaden, with serious consequences for stability and security. Economic growth is not achieving the anticipated transformation, and is causing internal migration, increased pover ty and marginalisation and social inequality.12 Education forms par t of this social inequality, with schools becoming places where these social problems are tangible and sending alarming signals to the broader community. Education was previously a symbol of Apar theid as it represented the visible inequity based on racial discrimination and schools were often the rallying point for the struggle against Apar theid. The system is still suffering from this image and schools are still considered to be places where discontent can be shown with aggressive behaviour. 13 According to the OECD repor t, the concept of economic and social cohesion as a strategy for alleviating social inequality is not adequately integrated into the national strategic policies of AsgiSA, JIPSA and BBBEE or the provincial government priority action plans. The links between education and training, resulting in economic development have not been sufficiently developed and the dialogue between the working world and education is not adequately addressed in the provincial plans.

12 Depar tment of Labour, n.d.-c., p 3. 13 OECD (2007), Review of National Policies for Education South Africa, p 242, OECD, Paris.

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National Qualifications Framework (NQF)

N ational Qualifications Framework (NQF) As skills are seen as the gateway to economic oppor tunity and social mobility, it is essential to ensure fairness, quality and flexibility of learning opportunities across a range of formats. This is the purpose of the NQF, which is aimed at standardising, within certain limits, the education and training system. This includes institutional types of education and occupational (work related) skills development, including vocational learning, apprenticeships, internships and learnerships. The NQF provides the scaffolding of the education system and was to promote an egalitarian educational system, which facilitated mobility and progression within education, training and career paths and to redress past unfair discrimination in education by recognising prior learning. 14 The framework also ensures quality within the system, as learners are able to review programmes against a standard framework of measurement. The NQF originated from the living wage struggles and student uprisings of the 1970’s. Employers rejected demands for wage increases by workers on the grounds that workers did not have the skills to earn higher wages. In 1989, the National Union of Metalworkers of South Africa (NUMSA) formed a focus group to develop recommendations for transforming skills development. This research group identified the link between skills and salary gradings and confirmed the impor tance of basic education, so that workers could access skills development oppor tunities. These recommendations were adopted into COSATU’s formal policy in July 1991.15 Non-Governmental Organisations (NGO’s) were also developing innovative responses to these education and training challenges, 14 16 17 18

This criticism of the NQF centred on: • Having more impact on discussion than practice;19 • For being restrictive, bureaucratic and focused on the old style of learning; • For being unduly complex with elaborate standards being proliferated by quality assurance bodies; • For the low level of people actually trained and cer tificated.20 which resulted in the National Education Policy Initiative (NEPI) of 1992. This initiative called for more detailed proposals for the restructuring of the formal education system and proposed a unified system of education and training that embodied democratic principles to redress past imbalances. The need for an integrated system was also identified by the task team established in 1992 by the Depar tment of Manpower and the trade union federations. This growing consensus resulted in an interministerial working group being established to draft an NQF bill, which became the South African Qualifications act of 1995.16 The NQF is based on the South African Qualification Authority (SAQA) Act of 1995 and is an overarching structure, aimed at bringing together schooling, industrial training and higher education into a single qualifications framework. The SAQA act provided for an outcomesbased system, where skills and knowledge could be measured against “socially agreed standards”, to provide a uniform system for quality management. 17 In 2000, 25 SETA’s were established to regulate the qualifications provided to employees. The SETA/NQF model of quality assurance was based on decentralised assessment where individual institutions are accredited to offer specific, registered qualifications. Each SETA has its own requirements for the accreditation of providers within its sector, which have to design learning programmes aligned to the registered qualifications and ensure assessment and moderation to ensure quality assurance of the system.

countries having established frameworks, and a total of 53% of countries involved in developing frameworks (including the 12% of countries which have already established a framework). This practice is supported by international bodies, including the International Labour Organisation (ILO), United Nations Educational, Scientific and Cultural Organization (UNESCO) and the European Commission.18 The principles of the NQF include: • Opening access to education for adults who missed out on previous learning oppor tunities. • Making the learning system more transparent and accountable. • Integrating the many different components and unifying them under the NQF principles. • Allowing learners to transfer credits from one course to another and from one par t of the system to another. • Recognising skills acquired through experience as well as through traditional study. The first five years of the NQF required substantial work to develop unit standards, register qualifications and guidelines on a range of topics. Simultaneously, an entire provider accreditation system had to be developed as par t of the quality assurance of the delivery and assessment of skills development programmes and learnerships. The unprecedented scale of change being effected, resulted in the inevitable criticism of the newly developed system.

The development of an NQF is in line with international best practice, with 12% of

SAQA,2000, p 23. | 15 Depar tment of Education (2007), FET Colleges: Institutes of First Choice - Your Guide to a Changing Sector, Rainbow SA, Pretoria, p 66 Depar tment of Education (2007), FET Colleges: Institutes of First Choice - Your Guide to a Changing Sector, Rainbow SA, Pretoria, p 65 OECD (2007), Review of National Policies for Education South Africa, p 76, OECD, Paris. Depar tment of Education (2007), FET Colleges: Institutes of First Choice - Your Guide to a Changing Sector, Rainbow SA, Pretoria, p 66.

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The OECD review confirmed criticism of the NQF as “complex, slow, costly and over bureaucratic” with expressed concern over the management of SAQA, par ticularly regarding the number of existing qualifications (10 000) and the mismatch between graduate skills and the skills required by the market. Table 10: The structure of the National Qualifications Framework Sector

Higher Education

NQF

Doctorate

Masters

Honours

Diploma

Higher Certificate

Certificate Further Education General Education And Training

National Senior Certificate Gd 12

NCV L4

Adult FET Cer tificate L4

Grade 11

NCV L3

Level 3

Grade 10

NCV L2

Level 2

Grade 9

ABET L4

GET Cer tificate L1

Occupational Awards

and National Skills Certificate

Source: FET Colleges Times, June 2009, p 10. This criticism resulted in a review process, including “the repor t of the study team on the implementation of the NQF” (April 2002), followed by “An interdependent NQF System consultative document” (July 2003). These reviews informed the development of the Joint Policy Statement of the Ministers of Education and Labour. During the review process, SAQA ran out of its European Union star t-up funding and the uncer tainty and disputes arising from the review resulted in an operational paralysis. The disagreement centred on the principle of one integrated qualification framework for academic, vocational and occupational learning, which was energised by the traditional divide between the discipline-based academic learning and skills development.22 The intrinsic differences arising between academic, vocational and occupational learning created a permanent potential for conflict. An example of this conflict is the overlapping and conflicting roles and responsibilities of the 31 ETQA quality assurance bodies. The original NQF developed within South Africa was unique in that it covered all education sub-frameworks and learning contexts, with a common set of qualification types and level descriptions. This resulted in a complex structure which presented implementation challenges. The Joint Policy Statement confirmed the intention of preserving a single national qualifications framework, while allowing greater independence for institution based learning and work based learning. This statement informed the development of the Skills Development Bill (2008). The revised NQF bill (Republic of South Africa, 2008) aims at addressing these issues to improve the framework and provides for a more loosely integrated framework. The NQF is now organised into three distinct sub-frameworks: • The General and Fur ther Education and Training Qualifications Framework (GFETQF), which is the responsibility of the DoE. • The Higher Education Qualifications Framework (HEQF), which is also the responsibility of the DoE. • The Occupational Qualifications Framework (OQF), which is the responsibility of the Depar tment of Labour (DoL). Each sub-framework has its own quality assurance body and is required to collaborate and co-ordinate with the other frameworks to maintain the principles of the NQF.23

19 21 22 23

Chrisholm, 2007, p 298. | 20 OECD (2007), Review of National Policies for Education South Africa, p 79, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 79, OECD, Paris. Depar tment of Education (2007), FET Colleges: Institutes of First Choice - Your Guide to a Changing Sector, Rainbow SA, Pretoria, p 69. Depar tment of Education (2007), FET Colleges: Institutes of First Choice - Your Guide to a Changing Sector, Rainbow SA, Pretoria, p 76.

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The National YOUTH DEVELOPMENT AGENCY (NYDA)

T he N ational YOUTH D EVELOPMENT AGENCY (NYDA) The country is ushering in a new era in youth development with the launch of the National Youth Development Agency (NYDA), a South African youth development agency resulting from the merger of the National Youth Commission (NYC) and Umsobomvu Youth Fund (UYF). NYDA was established for two primary reasons. Firstly, it is aimed at consolidating various youth government structures into one entity. Therefore, the NYDA will be operational at national, provincial and local government level and thus improve coordination. Secondly, the NYDA Act provides a regulated mechanism that can be used to implement youth development programmes based on agreed policy. UYF existed outside an act of Parliament and therefore had no regulated mandate. This made access to resources unpredictable. With the Act, the NYDA will be able to access resources on a sustainable basis and therefore take programmes to scale. UYF was established in January 2001 with the R855 million generated from the demutualisation of Sanlam and Old Mutual. UYF’s mandate was to create a platform for skills development and job creation for the South African youth between the ages of 18 and 35 and entrepreneurship suppor t for women of all ages. UYF made strategic investments that facilitated oppor tunities for young people to acquire skills, access job oppor tunities and pursue meaningful self-employment oppor tunities through various enterprise initiatives. UYF executed its mandate by focusing on three programmatic areas being; Information Provision, Skills Development and Transfer and Entrepreneurship programmes.

Some of UYF’s achievements include: •

Being a world-leading youth development agency in terms of its breadth of products and ser vices, its holistic approach to addressing the needs of young people covering information and counseling, skills development and entrepreneurship.

•

Training over 250 000 youth.

•

Recruiting over 6 000 volunteers for the FIFA Confederations Cup South Africa 2009.

•

Suppor ting over 110 000 youth entrepreneurs including advancing 1.

R637 million Enterprise Finance (loans & investments) and Business Development Suppor t Services valued at R300 million through the Business Consultancy Services Voucher Programme. •

Leveraging approximately R2 billion from the Private Sector including R240 million from First National Bank, R100 million from Old Mutual, R25 million from Business Par tners and from the Public Sector including the Expanded Public Works Programme and various SETAs.

•

Creating a network of 121 Youth Advisory Centres visited by over 2, 1 million youth.

•

Being the First and only Development Funding Institution in South Africa to receive ISO 9001:2000 cer tification confirming our status as the World’s leading Youth Development Institution.

•

Creating over 126 000 jobs.

1. Through outreach activities UYF has touched the lives of young people

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2. UYF’sHANDBOOK training programmes have made young people more employable EDUCATION CHAPTER 3 | Restructuring the Education System 3. Skills development was one of UYF’s priority areas

The Jupiter Drawing Room 35217

CHAPTER 4

Time to Connect Building on the foundation of the Education Handbook, www.teacher.org.za is a new online platform with up-to-date information about the key repor ts, issues and initiatives

GOVERNANCE & FINANCING

CO-OPERATIVE GOVERNANCE MODEL

GOVERNANCE OF LOCAL AFFAIRS

SCHOOL GOVERNANCE

EDUCATION FINANCING

TOWARDS EQUITABLE FINANCING

SCHOOL FEES AND NO-FEE SCHOOLS

HIDDEN FEES

DEPARTMENT OF EDUCATION BUDGET & STRATEGIC PLAN 2008/09

covered in this publication.

We’d like to hear your comments and suggestions on how we can improve and expand both the website and the next edition of the Education Handbook. Log onto www.teacher.org.za today and post your comments to make a real difference.

Quality education breeds prosperity. That is why we invest millions of rands towards education. Through initiatives such as targeted teacher and learner development programmes in maths, science and technology, practitioner development in the early childhood development sector and other programmes, we seek to contribute meaningfully towards nation-building. It’s our way of making sure that a brighter tomorrow starts today.

CHAPTER 4 | GOVERNANCE & FINANCING

Absa Bank Ltd, Reg No 1986/004794/06. Authorised Financial Services Provider. Registered Credit Provider Reg No NCRCP7.

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Co-operative Governance Model

Governance and appropriate financial resourcing of the education system are areas of bedrock impor tance. This chapter provides an over view of the governance structure for the education system and the system of financing to ensure an equitable system. South Africa has adopted a concurrent mode of governance, with powers divided between the national and provincial depar tments of education, with the greater par t (about 86%) of the budget being distributed through the provincial depar tments. C o- operative G overnance M odel The Constitution makes provision for the sharing of power across three levels of Government: national, provincial and municipal in a co-operative governance model through a ministerial council. The national and provincial governments have concurrent legislative competence with each level having specific powers. This model is not defined by a hierarchy power structure, which means that provincial levels retain the power to govern at provincial level, provided it does not impact on national priorities. Whilst the national government is responsible for policy formulation, provincial government is responsible for implementation. However, there are concerns about the co-operative governance model, which centres on accountability.

The question is raised about how the constitutional sharing of power can best contribute to sound educational policy making and effective implementation, to ensure quality Education For All (EFA). The National Treasury highlights this issue in a repor t stating that “policy making, budgeting, implementation and accountability for concurrent functions test the robustness of South Africa’s intergovernmental system from time to time...concurrent functions do occasionally present par ticular challenges”.1 Examples of these challenges include misalignment between policy objectives and resource allocation and accountability for non-delivery. At the national level, there are limited powers to hold provincial and municipal authorities accountable for non-delivery on national policy. The mechanism for resolving these

challenges rests with the Council of Education Ministers (CEM), where the national and provincial ministers meet on a six-weekly basis to discuss policy matters. The Director General of the DoE also meets on a regular basis with the Heads of the Education Depar tments Committee and organises bilateral meetings with each of the heads of the provincial depar tments. According to the OECD repor t, international experience shows that separating policy and implementation, without ensuring regular and focused feedback “loops”, almost inevitably leads to a divergence between intended policy and deliver y. The OECD repor t suggests that sound policy making and implementation requires a circular, not linear model to ensure accountability.

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The OECD repor t recommends that it is impor tant to “move from controlling input and process to controlling performance, with constructive monitoring and constant co-operation between the ministers and the depar tments and the agencies”.2

“The process of getting things right cannot be entirely driven by the top, but depends on co-operating and learning from both parties”.3 The findings of the OECD repor t confirm that there is a genuine spirit of co-operation and that the ministers are exceptionally competent and motivated to transform education. This is suppor ted by strong co-operation with the National Treasury and a dedicated and open civil service suppor t. However, the lack of an effective accountability model implies that there is no mechanism to ensure quality provision at the district and school level, par ticularly with regard to resource allocation and financial management. The national level does not have financial audit authority over provinces and provincial authorities are not obliged to suppor t national priority areas.

2 OECD (2007), Review of National Policies for Education South Africa, p 140, OECD, Paris. 3 OECD (2007), Review of National Policies for Education South Africa, p 140, OECD, Paris.

1 National Treasury, 2007b.

The “new public management” approach dominant in scientific literature on public services and management, recommends the devolution of cer tain powers to local and provincial authorities and/or agencies.

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Co-operative Governance Model

G OV E R N A N C E O F L O C A L A F FA I R S Issue or Goal

FEEDBACK into POLICY, and POLICY REVISION

POLICY Consultation, formulation and formal adoption

DECISION MAKING

PRODUCT repor ts: Has the policy achieved what was intended?

E VA LU AT I O N

POLICY domain

ADMINISTRATION domain

REGULATIONS, standards, benchmarks, implementation guidelines (Administration)

PROCESS repor ts: How is implementation proceeding? (schools, districts, provincial and National DoE administrators)

ACTION: Implementation (system)

Figure 4: The Policy Cycle Source: OECD Review Team, 2008.4 A model of constructive oversight is proposed by the OECD, focused on better government and a clean, efficient and open administration to facilitate effective policy and implementation. This model should include a revitalised, professional form of inspectorate to ensure that every learner across the country receives the quality of education to which he/she is entitled.5

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The Government is in the process of reviewing the system of provincial and local government and a white paper relating to this issue was expected at the end of 2007 and has not yet been published.6 There is a call for papers to suppor t the 2009 State of Local Government Research (SoLG).The purpose of this research project is to “produce a regular civil society-based assessment of the key challenges, debates and areas of progress with regard to governance and development at the local level in South Africa. It also aims to provide local government policy-makers and practitioners with practical recommendations to improve policy, guidelines, systems and interventions where necessary”.7 This research follows the initial SoLG project: “Local Democracy in Action: A Civil Society Perspective on Local Governance in South Africa”. This was the culmination of months of research by the members of the Good Governance Learning Network (GGLN), which provided local government policy-makers and practitioners with practical recommendations to improve policy, systems, guidelines and interventions. The theme for the annual SoLG repor t for 2009 is “Ethical Leadership & Political Culture

The 2008 SoLG repor t found that administrators and non-executive councillors often complained that “par ty caucuses made the real decisions; that council debates were orchestrated and unlikely to have any real impact on final decisions; and that politicians blamed the administrators for poor implementation of sound policy and in turn the administrators blame the politicians for making policy that cannot be practically implemented.” The GGLN confirms that high ethical standards are the cornerstone of good governance. If democracy is to be promoted, it is essential that governance at all levels must be ethical. Ethical governance focuses on the standards of conduct of all holders of public office, including financial and commercial activities. Leadership is required in creating an overall framework and direction and as an example of the values and ethos of governing. This creates commitment to good governance and builds confidence in those stakeholders who are involved in suppor ting development. The 2008 repor t confirms that South Africa has an extensive framework of anticorruption legislation and policy. This repor t acknowledges that surveys indicate that the public perceive local government to be a “hotbed of corruption”. The repor t confirmed that the major source of corruption is tenders and procurement procedures. This is compounded by misadministration, which is manifest in poor management and governance, par ticularly over financial and repor ting matters.

6 OECD (2007), Review of National Policies for Education South Africa, p 139, OECD, Paris. 7 Depar tment of Education, 2004b, p 11. 8 Depar tment of Education,2004b, p 9. | 9 Depar tment of Education, 2004b, p 57.

4 OECD (2007), Review of National Policies for Education South Africa, p 141, OECD, Paris. 5 OECD (2007), Review of National Policies for Education South Africa, p 144, OECD, Paris.

Municipalities govern on a four year basis and run local affairs including service delivery of basic services. This raises concerns about the ability of many poorer municipalities to deliver the services for which they are responsible. A low revenue base, compounded by a lack of capacity to collect taxes, cases of corruption, lack of qualified municipal staff and financial mismanagement are all contributory factors. This is impacting on improving and maintaining local infrastructure, such as roads, sanitation and water supply.

in Local Government”. This follows the findings of the 2008 repor t, which acknowledged the role of local leadership as “being crucial in addressing some of the developmental state’s numerous challenges”.

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SCHOOL GOVERNANCE

S C H O O L G OVERNANCE One of the key approaches to restructuring the education system and promoting social change is the school-level decentralisation, which is seen as essential for broad based par ticipation to promote democracy. The key principles in establishing School Governing Boards (SGB’s) include efficiency, good governance and social responsibility.7 The SGB’s comprise the school principal, elected representatives of parents, teachers, non-teaching staff and (in secondary schools) learners. Parents have the majority stake to ensure that previously marginalised constituencies have a greater voice. The SGB elections are the third largest public elections in South Africa, with over 5 million parents eligible for voting.8 Whilst this policy encourages democratisation and involvement of the community, it presents challenges in the poorer communities: • There are skills gaps between teachers and parents, which is compounded by an “exper tise-drain” from township schools as parents move their children to better resourced schools.9 • There are serious infrastructure backlogs to contend with. • Problems with sustaining active parent par ticipation, caused by literacy levels, lack of time and costs (such as transpor t) and a lack of understanding of their role and empowerment issues in asser ting themselves. • Tensions between school management teams and SGB’s with concern about SGB’s involving themselves in teacher conduct over professional matters.10 • Issues regarding learner admission, relating to the inability to pay fees and lack of proper documentation. The OECD review claims that poor parents are being discriminated against.11

Co-operative Governance Model

While it is right in principle to increase the autonomy of schools, the OECD repor t highlights the fact that many poorlyequipped SGB’s struggle to fulfil their basic functions. A lack of skills, sustaining active par ticipation and the enormous infrastructure backlogs are key challenges to the SGB’s functioning efficiently. Improvements are needed in cer tain critical areas, such as parental involvement, school development plans and fundraising. Criticisms have been made about “ceding power to the local site” which fails to take account of the diverse interests at local level. 13 Whilst it is the responsibility of provincial governments to provide training for SGB’s, the OECD repor t could not find clear evidence of this happening.14 There appears to be “a deep sense of despondency and hopelessness among those faced with the daunting task of governing schools in these circumstances”. 15 Issues of finance and budgeting take up a large propor tion of the SGB’s time as they have the authority to set and collect school fees, but this is at the expense of other matters of learning and teaching. SGB’s do not always publicise the parents’ right to apply for discounts or exemptions in paying for school fees. Despite these challenges, most SGB’s have encouraged public participation and accountability, with 200 000 volunteer citizens involved.16 SGB’s are now recognised as a juristic person, which redefines conflicts from a political to a legislative nature.17

The OECD report recommends the following actions for improving governance: • An administrative model based on constructive oversight should be devised, to improve accountable implementation of policy. A revitalised professional inspectorate could be introduced to ensure greater educational quality. • The policy development cycle needs to make provision for par tnership representation of provinces in policy design and in providing feedback on implementation challenges to inform policy revision. • Focused training programmes are required to build capacity at provincial and district levels. • To improve co-ordination of policy design and implementation, it is proposed that periodic staff transfer should be implemented between national and provincial levels. • New policy should be tested with pilot projects, to “road-test” and identify potential challenges for implementation. • Policy initiatives need to be suppor ted with effective communication, which needs to be incorporated from the initial stage of the policy process, not limited to the “selling stage” once a policy has been developed. • It is recommended that the education system would benefit from a period of relative stability and an era of consolidation to address the “reform fatigue” which is being experienced on the ground.

• Claims of cronyism in the appointment of teachers.12 7 11 14 16

Department of Education, 2004b, p 11. | 8 Department of Education, 2004b, p 9. | 9 Department of Education, 2004b, p 57. | 10 Department of Education, 2004b, p 165. Depar tment of Education, 2004b, p 118. | 12 Depar tment of Education, 2004b, p 125. | 13 Depar tment of Education, 2004b, p 11. OECD (2007), Review of National Policies for Education South Africa, p 142, OECD, Paris. | 15 Depar tment of Education, 2004, p 50-52. Department of Education, 2004b, p 164. | 17 Depar tment of Education, 2004b, p 36.

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Education financing

“The state must fund public schools from public revenue on an equitable basis in order to ensure the proper exercise of the rights of learners to education and the redress of past inequalities in education provision”. 18

ing the strategic impor tance of education for South Africa’s national development and for addressing historical inequalities. The OECD review team recommends a future target of 6% of GDP, in line with UNESCO’s recommendations.21 The education budget is dominated by personnel expenditure, par ticularly the cost of teachers’ salaries, representing 83.9% (2007/2008) of total education spending (down 2,8% from 2002/2003).22 This indicates that personnel expenditure is slowly and progressively being contained to allow for more expenditure on books, essential services, school construction and maintenance and teacher development.23 The target is an 80:20 ratio for the personnel to non-personnel ratio.

Spending on education has consistently outpaced inflation since 1994, and grown by 40% between 1994 and 2005. However, the real expenditure on education from 1995 to 2002 has declined as a share of both total government expenditure (1996: 19.2% to 2002: 18.8%) and Gross Domestic Product (GDP) (1996: 5.7% to 2002: 4.9%).19 “Education does not only show the slowest real growth rates compared to other social service sectors, but its claims on provincial resources have been systematically trimmed”.20 Compared to other middle income countries, the rate of 5.4% of GDP is respectable, but insufficient when consider18 21 23 24 27

Educational transformation and policy implementation have been constrained by: • The scale of the existing inequalities and the need to equalise per capita learner expenditure between and within provinces; • A limited budget, compounded by slow economic growth between 1994 and 2000; • Competition from other social sectors for government funding; • Education management and delivery inefficiencies and a lack of capacity at local and provincial government levels; and

Criticism has also been levelled at the National DoE’s ability to plan and spend available funds. Between 2002 and 2004, provinces could not spend more than half and barely four-fifths of funds for ABET and ECD, respectively.25 During this time, the national depar tment was able to spend only 45% of funding available for the Thuba Makote Rural School Building Programme.26 When assessing these statistics, it is important to note that education expenditure has nearly doubled between 2002 (R59,6 billion) and 2007 (R105,5 billion).27 The OECD review team confirms that the focus must be on: • Bridging the gap between national policy and implementation at provincial and local level; • Renewed effor ts to improve the planning, management and spending capacity of the provincial governments; and • Progressively re-directing personnel funding to non-personnel expenses (especially learning suppor t materials, libraries, equipment, infrastructure and transpor t). According to the OECD repor t, the Government should not be discouraged by the lack of correlation between education spending and learning outcomes, as major education investment takes time to deliver results.

• Difficulties in containing educational personnel expenditure at the expense of non-personnel expenses.24

The South African Schools Act, Republic of South Africa, m 1996c, Section 34.1. | 19 UNDP, 2003, p 24. | 20 Wildeman, 2005, p 14. OECD (2007), Review of National Policies for Education South Africa, p 148, OECD, Paris. | 22 Motala,S., et al., 2007. OECD (2007), Review of National Policies for Education South Africa, p 104, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 96, OECD, Paris. | 25 Wildeman, 2005, p 42, 47-9. | 26 Wildeman, 2005, p 39. National Treasury, 2007, p 3,19.

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29 OECD (2007), Review of National Policies for Education South Africa, page 149, OECD, Paris.

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TOWARDS EQUITABLE FINANCING

TOWA R D S E QUITABLE FINANCING The OECD review team confirm that the inequality of education funding during the Apar theid era was shocking with cer tain whites-only schools receiving 20 times more per learner than the poorest black schools. Between 1993 and 1997, public school spending per white learner was reduced from R5 500 to R3 800, whilst spending per black learner increased from R1 700 to R2 700, to improve educational equity.30 The OECD review team commends the effor ts of the national and provincial leadership in persuading all par ties to stay focused on the constitutional vision and achieving improved funding equity over such a shor t period.31 According to Wildeman,32 this redistribution does not provide sufficient evidence that the existing inequalities have been addressed as the spending does not address the infrastructure deficits that exist in the poorer schools. The OECD repor t confirms that the objective of education policy is equity, not equality, which implies that people with different needs will be treated differently. It is sometimes necessary to take unequal measures to overcome historical disadvantage. Equity in non-personnel funding has been implemented through pro-poor policies. Children from poor economic backgrounds need more individualised attention, which implies that these schools should have additional funding for teachers to reduce the learner :teacher ratios. At present, it is the wealthier schools that are able to charge school fees and attract additional teachers to provide more suppor t of learners. It is recommended by the OECD that the equity principle, not equality, be applied to personnel funding. The goal for education is to ensure that each province is able to spend an equitable amount on each learner.33 30 32 35 37

School fees, No-fee schoolS AND HIDDEN FEES

Wide disparities still exist in fiscal capacity amongst South Africa’s nine provinces, as there is an unequal gap between the amount of tax revenue each province can raise and the money it needs to fulfil its responsibilities for basic services, including education. The Constitution implicitly recognises this fiscal gap by establishing an inter-governmental system known as the Equitable Share, where a por tion of nationally raised revenue is distributed to provinces and local government. Another primary mechanism for distributing financial resources is the National Norms and Standards for School Funding (NNSSF), which is aimed at more equitable intra-provincial expenditure. The equitable share reaches provincial governments in the form of an unconditional grant, which allows provinces to make their own decisions about how to spread this share across provincial social ser vices. However, this is restricted in a number of ways. An example of this restriction is the payment of teachers’ salaries, which are set on a national basis. This expense accounts for about 85% of total expenditure on education. The NNSSF requires each provincial education department to rank schools in order of poverty, based on the income, dependency ratio and education level of the school’s surrounding community, according to national quintile categories and then to allocate funding for non-personnel expenses progressively.34 Non-personnel expenses include learner suppor t materials, school maintenance and building renovation and the provision of essential ser vices. These are allocated as follows: 35% of funds for the poorest 20% of schools, 25% for the next poorest 20% and 20%, 10% and 5% respectively for the following 3 quintiles. 35

However, there are still challenges to achieving a reasonable level of parity and the complex system of education finance has some in-built and unintended consequences that affect equal provision. An example is the unequal ability to raise education funding through the charging of school fees. No-fee schools are not able to benefit from this form of fundraising. 15.5% of national funding is in the form of conditional grants for FET, college sector recapitalisation, HIV and Aids and the National School Nutrition Programme. These grants are an expression of national concern for essential priorities, but can be perceived by the provinces as an infringement on their autonomy and a lack of confidence in provincial capacity to address these issues.36 There are also concerns regarding the ability of SGB’s to utilise funding effectively and regarding the adequacy of the funding to address the challenges faced in the lowest four quintiles to address equity requirements. “There are schools that perform well despite the fact that they suffer deplorable physical conditions, learners come from poor households, and the teachers have average qualifications”.37 The OECD repor t confirms that the best indicator of education funding equity would seem to be per-learner expenditure in public schools, with the increase in this expense ranging from 140% in poorer provinces to 40% in some of the richer provinces (1996/2004 period). The OECD repor t concludes that this expenditure is now almost equal across provinces, which is a considerable achievement taking account of the inequality during Apar theid.38

Van der Berg, 2001. | 31 OECD (2007), Review of National Policies for Education South Africa, p 152, OECD, Paris. Wildeman, 2005, p 27-28. | 33 Country Background Repor t: South African Education. CBR, p 61. | 34 Depar tment of Education, 2006b, section 102b. Depar tment of Education, 2003c, p 16. | 36 OECD (2007), Review of National Policies for Education South Africa, p 152, OECD, Paris. Depar tment of Education, 2003d, p 64. | 38 OECD (2007), Review of National Policies for Education South Africa, p 154, OECD, Paris.

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EDUCATION HANDBOOK

S chool fees and no - fee schools The OECD repor t notes that the charging of school fees, whilst offering par tial or full exemptions, is considered a compromise, whilst attempting to rebalance the education system. It is the Government’s intention to phase out school fees, to align with international conventions of Education For All (EFA). At present, the private cost of education (as a % of total household expenditure) has doubled, which raises concerns about education, as poverty is the most formidable barrier to school attendance. Whilst the government ideal of free education is still beyond reach, it has begun to be realised in the form of the first no fee schools. All no-fee schools receive an annual minimum of R554 per learner, with 40% of learners (over 5 million) attending 13 856 no-fee schools in 2007.39/40 Despite these policies, there are issues regarding the communication of fee exemptions, as many children who qualify for fee exemption, do not receive them, or schools reject these inconvenient learners. Parents also believe that these learners are treated differently and stigmatised as poor learners. School fees at the balance of the schools are determined by the SGB’s, subject to majority parental approval. In 1995, almost 86% of learners paid no more than R100 per year for school fees, whilst in 2003 this figure had dropped to only 62%. This indicates that the cost of education for most households has dramatically increased since 1994, with education expenditure as a percentage of total household expenditure rising from 2% to 4%.41 Fewer secondary schools qualify for no fee status, despite the fact that post-grade nine phases are more expensive. The Child

39 41 43 45 47

Suppor t Grant (CSG) has been raised from 14 to 15 years, but this is still insufficient to address the significant drop in enrolment rates after grade 9. The General Household survey (2005) found that about 50% of all reasons why a 14-17 year old was not in school are related to the cost of schooling and the need to work. About 5 million learners are in no-fee schools42 and in 2008, approximately 25 000 additional learners and 352 schools will benefit from the policy, compared to 2007. Whilst the wealthier provinces are extending the no fee policy to more schools, the OECD review is concerned that this could “exacerbate inter-provincial differences in access to affordable schooling”.43 There also appears to be issues with the ranking of no-fee schools, based on the pover ty levels of the communities and not according to the learners and the pover ty associated with their households. Also, no fee schools are prohibited from raising money by fees or other charges. This limits them in hiring better qualified teachers, improving facilities and maintaining smaller class sizes, which increases the quality gap between schools. Research under taken by the Cape Town Children’s Institute in 2005/06 in the Western Cape and Eastern Cape confirmed that 57% of urban children and 80% of rural children were eligible for exemptions, but the uptake was almost zero.44

25% of school-age children travel more than 30 minutes to reach school.48

Hidden F ees The cost of uniforms and transpor t also act as access barriers to schools and affect daily school attendance. The DoE is developing guidelines for the cost of uniforms and transport to address these hidden costs.45

The OECD report suggests the following recommendations for improving the financing of education: • Whilst it is recognised that immediate, full implementation of free education is not possible, it is critical that “deliberate speed be applied to removing the remaining barriers to universal access and completion”.46 • Prevent and reverse non-attendance and drop-out by learners by addressing hunger and fatigue related to travel, and early detection of learners struggling with the education level to prevent repetition of grades. • Consider whether a post-age 15 alternative to the CSG might encourage poor families to keep older children in school, as this represents the only source of income for 78% of recipients. • Prevent the pushing out of inconvenient children, related to fee-exempt children, low achievers, special needs children or those affected by HIV/Aids.47

OECD (2007), Review of National Policies for Education South Africa, p 98-100, OECD, Paris. | 40 Depar tment of Education, 2007e. OECD (2007), Review of National Policies for Education South Africa, p 98, OECD, Paris. | 42 Department of education 2007a. OECD (2007), Review of National Policies for Education South Africa, p 161, OECD, Paris. | 44 Cape Town’s Children’s Institute, 2006. OECD (2007), Review of National Policies for Education South Africa, p 162, OECD, Paris. | 46 OECD (2007), Review of National Policies for Education South Africa, p 165, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 166, OECD, Paris. | 48 General Household Survey, 2005.

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Education Budget & Strategic Plan

Department of Education B udget & S trategic Plan 2 0 08/09

Table 3: Summary of the budget structure for the Department of Education

Table 1: Consolidated Education Expenditure 2008/09 to 2010/11 2007/08 Adjusted Budget

2008/09

R’000

Total Education

106,347,267

122,878,295

National

16,386,752

Provincial

89,960,515

% Inc/ (Dec)

2009/10

2010/11

R’000

15,5

134,745,789

147,673,976

18,857,546

15,1

20,194,397

23,089,506

104,020,749

15,6

114,551,392

124,584,470

2008/2009 refers to the period 01 April 2008 to 31 March 2009. There are differences between the R140,4 billion confirmed in the budget speech and the amount of R134 745 789, as the budget amount includes all education expenditure including nursing and agricultural colleges, which are not included in the depar tment of Education’s budget. Table 2: Education summary 2008/09

R’000

Total Baseline

16,386,752

18,857,546

Higher Education Institutions

11,942,751

Transfers to NSFAS

2008/09

R’000

P1: Administration

161,322

202,683

P2: System Planning and Monitoring

96,538

P3: General Education

% Inc/ (Dec)

2009/10

2010/11

R’000

25,6

219,397

239,415

98,116

1,6

109,591

115,723

298,674

348,166

16,6

330,606

358,892

P4: Further Education and Training

1,189,964

1,023,353

-14,0

203,134

211,134

P5: Social and School Enrichment

1,278,816

1,980,464

54,9

2,347,166

2,909,231

P6: Higher Education

13,326,930

15,178,189

13,9

16,956,147

19,225,054

P7: Auxiliary and Associated Services

34,508

26,575

-23,0

28,356

30,057

TOTAL

16,386,752

18,857,546

15,1

20,194,397

23,089,506

2008/09

2009/10

2010/11

R’000

Baseline allocation in 2007 ENE

18,226,271

19,400,945

21,178,185

Increased subsidation of Public Entities

8,000

8,300

8,700

Support for the expansion of Grade R and ECD

11,000

12,000

17,000

Expansion of Inclusive Education

4,000

8,000

15,000

Higher Education

246,910

258,623

939,133

Compensation of Personnel: Resolution 1 of 2007

6,148

6,734

7,071

Accommodation charges

Compensation of Personnel: Inflation Adjustment

2,341

3,801

4,691

Non-personnel Inflation Adjustment

17,503

21,536

25,584

National School Nutrition Programme

344,616

493,255

918,182

Baseline efficiency saving

(9,270)

(18,837)

(24,095)

Total 2008 MTEF Allocations

18,857,546

20,194,397

23,089,506

Source: Depar tment of Education Budget & Strategic Plan 2008/09 Table 4: Education Priorities

Source: Depar tment of Education Budget & Strategic Plan 2008/09

2007/08 Adjusted Budget

% Inc/ (Dec)

2009/10

2010/11

R’000

15,1

20,194,397

23,089,506

13,556,618

13,5

14,925,620

17,072,830

1,332,697

1,566,465

17,5

1,973,068

2,093,259

Baseline Allocation

1,112,697

1,186,465

6,6

1,273,068

1,351,259

Teacher Bursaries

120,000

180,000

50,0

400,000

424,000

FET College Bursaries

100,000

200,000

100,0

300,000

318,000

Transfers to Public Entities

79,640

84,818

6,5

88,856

94,173

Conditional Grants to Provinces

2,016,773

2,546,008

26,3

1,994,599

2,536,085

Other Transfers

11,942

11,612

-2,8

12,095

12,776

Earmarked Funds

399,896

509,060

27,3

584,405

620,422

Public Examinations

57,554

52,371

-9,0

54,396

58,769

Departmental Operations

545,499

530,594

-2,7

561,358

601,192

Source: Depar tment of Education Budget & Strategic Plan 2008/09

The baseline allocation in 2007 ENE refers to the allocation received during the 2007 MTEF process. This baseline is then supplemented (or not) during the next MTEF process, which then results in an updated budget. The Total Sector Bid refers to the bid for additional funding for the Education Sector (Provincial), which is submitted to National Treasury. EPWP refers to the Expanded Public Works Programme, of which there is an element of ECD. Preliminary allocations refer to indicative allocations not confirmed through allocation letters by National or provincial treasuries.

Total baseline refers to the approved budget for the 2008 Medium Term Expenditure Framework (MTEF) period. The Baseline allocation refers to a breakdown of the transfer to the NFSAS that includes the baseline amount, teacher bursaries and FET college bursaries. This table refers to specific services whilst table 4 refers to the Department’s budget structure.

Source: Depar tment of Education. Presentation to the select committee. Strategic Plan 2008-2012 and budget and operational plans 2008-2009. Accessed from http://www.pmg.org.za/repor t/20080304-depar tment-education-budget-strategic-plan-200809.

EDUCATION HANDBOOK

CHAPTER 4 | GOVERNANCE & FINANCING

EDUCATION HANDBOOK

CHAPTER 4 | GOVERNANCE & FINANCING

CHAPTER 5

Time to Connect Building on the foundation of the Education Handbook, www.teacher.org.za is a new online platform with up-to-date information about the key repor ts, issues and initiatives

EARLY CHILDHOOD EDUCATION (ECD)

INTRODUCTION AND OVERVIEW

THE NEED FOR COLLABORATION

TARGET FOR ECD PROVISION

FINANCIAL SUPPORT FOR ECD PROVISION

MULTI-MEDIA SUPPORT FOR ECD

ECD TEACHER DEVELOPMENT

THE MANAGEMENT AND QUALITY DEVELOPMENT OF PRE-RECEPTION PROGRAMMES

RECOMMENDATIONS FROM THE OECD REVIEW

covered in this publication.

CHAPTER 5 | EARLY CHILDHOOD EDUCATION

EDUCATION HANDBOOK

CHAPTER 5 | EARLY CHILDHOOD EDUCATION

INTRODUCTION AND OVERVIEW

Education financing

This chapter provides a review of ear ly childhood education, which is receiving more attention as ECD is seen to be essential in creating the foundation for future learning. Prior to 1994, the ECD policy and legislative framewor k was incomplete and fragmented, which resulted in limited access to ECD, inequities in provision and quality variability in ser vices. In 1996, the National Programme of Action for Children in South Africa established a framework prioritising nutrition, child health, water and sanitation, ECD and basic education, social welfare development, cultural and leisure activities and child protection measures. Leadership roles were given to the Depar tments of Education (DoE) and Social Development, while recognising the contributions from many other depar tments.1 In 2001, an audit of ECD provision was under taken by the DoE, which was funded by the European Commission (EU). The survey identified 23 482 sites (only 61% registered) with 17% school based, 49% community based and 34% home based. Whilst there had been substantial growth in the school and home based sites in the previous two years, 64% of the sites had been operating for more than five years. The language of instruction at 83% of the sites was English, compared to only 12% of learners having English as their home language. The provincial data indicated significant variances with the Eastern Cape having more community based sites (56%) than Gauteng (32%). In the Eastern Cape

24% of the sites had no electricity, piped water or flushing toilets.2 Learner to teacher ratios averaged 19:1, with the Gauteng ratio of 16:1 compared to the Eastern Cape’s ratio of 24:1. Teacher qualifications also revealed a different set of variances. According to the OECD review, these variances need to be considered in policy development, as the quality of a policy programme is judged on “the extent to which it provides a framework for those most disadvantaged to proceed.”3 The reality is that the best practice in the most advanced site is being used for national policy. The publication of the white paper on ECD in 2001 serves as the baseline for monitoring progress and addressed two specific areas for ECD: • The expansion of provision in the context of coherent and targeted inter-sectoral programmes for children from bir th to four years. • The provision of grade R education in schools and community settings.

The target population for grade R is about 990 000, with 424 000 currently in public ordinary schools (380 000 publicly funded) and 17 000 in independent schools and 290 000 in community centres, which represents about 70% enrolment in 2006. Attendance for 5 year olds has improved from 40% (2002) to 62% (2006) and for 6 year olds from 70% (2002) to 84% (2006). This reflects the phasing in of grade R provision.4

1 OECD (2007), Review of National Policies for Education South Africa, p 218, OECD, Paris. | 2 OECD (2007), Review of National Policies for Education South Africa, p 218, OECD, Paris. 3 OECD (2007), Review of National Policies for Education South Africa, p 220, OECD, Paris. | 4 OECD (2007), Review of National Policies for Education South Africa, p 48, OECD, Paris.

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CHAPTER 5 | EARLY CHILDHOOD EDUCATION

The need for collaboration

T he need for collaboration

Financial support for E C D provision

One of the Governmentâ&#x20AC;&#x2122;s strategic objectives is to extend quality, integrated ECD services to the most marginalised communities. This strategy plays a suppor tive role to the Depar tment of Social Development, the lead depar tment in terms of the Childrenâ&#x20AC;&#x2122;s Act 2005. The National Integrated Plan on ECD is a collaborative effor t between the Depar tments of Education, Social Development and Health, which highlights the need for collaboration between these departments.

The expansion of grade R enrolment is suppor ted with a subsidy to suppor t schools in employing additional teachers and a per learner based grant is provided to community based sites. Budgets for grade R have grown from R377 million in 2003/04 with projections for 2009/10 reaching R1,3 billion. The Government has announced a R9.7 billion investment to ensure fourfold expansion of education and care services for children under the age of six, and this budget is split between the Depar tments of Social Development and Education. The OECD review confirms the need to train ECD teachers as central to this strategy.

Targets for ECD provision For the introduction of grade R, the white paper confirmed a progressive roll out across the country. The intention is for all public primary schools to become sites for the provision of accredited reception year programmes. The target for Grade R is full coverage by 2010 with 85% provision located at public primary schools and 15% through community sites.5 The rationale for this target is to suppor t the strategic focus on improving the quality of education outcomes and reduce wastage in the system. The current status indicates increases from 40% enrolment (2002) to 62% in 2005.

The focus is on expanding access as there is strong evidence for the need to expand places, with only 8 497 out of 18 857 schools offering grade R in 2006. Despite the increase in budgets, the current budgets do not allow for universal enrolment in quality services by 2010. The average ECD budget per 5 year old is R686 per learner in 2006.6 This funding strategy is controversial, as it is based on the assumption that costs could be reduced by using community energies in the National ECD Pilot Project. This assumption undermines the current policy, which requires that grade R is introduced at schools, as parents have greater confidence in school based provision. The reality is that schools are reluctant to introduce grade R as this stage receives less funding than grades 1-7.

The variation in ECD, especially when correlated to ethnicity, rurality and socioeconomic status, is a key contributor to individual, community and provincial differences, leading to long-term education disparities being well embedded.

The consequence of this funding strategy is that there is a greater reliance on community provision. This raises concerns relating to the low cost projections and issues

CHAPTER 5 | EARLY CHILDHOOD EDUCATION

The model also assumes class sizes of 30, which raises fur ther doubts about quality. This is compounded by insufficient monitoring approaches and capacity. The OECD review confirmed that the quality/ cost argument is contrary to international experience, which identifies the early years as requiring the most intensive teacher to child ratios to ensure the best possible acquisition of numeracy and literacy skills. This view is confirmed by the underachievement of South African learners in the range of studies conducted over the past few years.7 The risk of this existing model is that an investment will be made without the expected improvement in quality and access. There is a need to improve quality through increased resourcing for personnel, facilities and complementary inputs.8

M ulti - media support for E C D The DoE has under taken to develop appropriate curricula for pre-reception year programmes, with an emphasis on mathematical literacy, language and life skills. A multi-media ECD strategy has been developed with the SABC, which has been introduced as par t of the national integrated ECD plan for 2007. This includes early stimulation programmes for children from bir th to 4 years.

6 OECD (2007), Review of National Policies for Education South Africa, p 224, OECD, Paris. 7 OECD (2007), Review of National Policies for Education South Africa, p 224, OECD, Paris. 8 OECD (2007), Review of National Policies for Education South Africa, p 48, OECD, Paris.

5 Education White Paper 5.

associated with quality implementation. There are doubts that the current model, which is based on a low average teacher cost, will increase education quality.

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ECD teacher development

The management and quality development of pre-reception year programmes

E CD teacher development The DoE has committed to expand ECD development over the medium term. Unit standards have been developed for the training of ECD teachers and training materials for the new qualifications and provision of learnerships for ECD teachers will follow. To suppor t development, the OECD review confirms that the recognition of ECD teachers needs to be clarified.10

“The Depar tment of Education confirms that “the professionalisation and recognition of ECD practitioners and teachers is still one of the depar tment’s major challenges, because there is no clear legislation that suppor ts the inclusion of the current cohor t of ECD practitioners as teacher s”. 11

In 2006, SACE confirmed that all ECD practitioners should be recognised as teachers and those who have completed a level 4 ECD qualification will be registered. A new set of level 4 unit standards for ECD practitioner training have been registered in 2006, but there are no registered providers to deliver on this qualification.12

T he management and quality development of pre -reception year programmes The DoE is committed to developing best practice models for the management and quality development of pre-reception year programmes. In May 2006, the Depar tment of Social Development, with the suppor t of UNICEF, published The Guidelines for Early Childhood Development Services. These guidelines confirm that the early years are critical for development and note that from bir th to seven years is a period of rapid physical, mental, emotional, social and moral growth and development, which lays the foundation for lifelong learning.

R ecommendations from the OECD review • Additional ECD investment should focus on parental support as early educators , through multimedia, multilingual programmes. • All grade R teachers, including community based ECD centres, should have access to professional development and curriculum suppor t materials.

10 OECD (2007), Review of National Policies for Education South Africa, p 49, OECD, Paris. 11 Depar tment of Education, 2006a. 12 OECD (2007), Review of National Policies for Education South Africa, p 221-225, OECD, Paris.

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CHAPTER 5 | EARLY CHILDHOOD EDUCATION

CHAPTER 6

Time to Connect

INCLUSIVE EDUCATION AND EQUITY

INCLUSIVE EDUCATION IN SOUTH AFRICA

LACK OF PRECISE DATA TO SUPPORT INCLUSIVE EDUCATION

THE NEED FOR INCLUSIVE EDUCATION

THE WHITE PAPER POLICY ON INCLUSIVE EDUCATION

FINANCING OF INCLUSIVE EDUCATION AND SPECIAL NEEDS

CARE DEPENDENCY GRANT SUPPORT FOR FAMILIES

STRATEGY ON SCREENING, IDENTIFICATION, ASSESSMENT & SUPPORT

about the key repor ts, issues and initiatives

THE STATUS OF INCLUSIVE EDUCATION

covered in this publication.

THE UP WITH DOWN’S PROJECT

Building on the foundation of the Education Handbook, www.teacher.org.za is a new online platform with up-to-date information

CHAPTER 6 INCLUSIVE EDUCATION AND EQUITY

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CHAPTER 6 INCLUSIVE EDUCATION AND EQUITY

Inclusive Education in South Africa

The White Paper Policy on inclusive education

In the South African context, educational inclusion extends beyond access to schooling for persons with disabilities. The policy is par t of a fundamental shift away from the segregated Apar theid education system towards the principle of social inclusion. It reflects the countr y’s determination to promote equity and prevent any form of discrimination, including race, gender, language, disability or pover ty. This implies that ever y child should be able to par ticipate actively in education and should not be excluded on the basis of health, pover ty or employment. Inclusive Education in S outh A frica Public schools are required, by law, to admit all learners and to provide relevant suppor t services for learners with special educational needs (SEN). In 2001, the White Paper 61 details an integrated education system involving special schools, regular schools and par tnerships with stakeholders from the health and social development sectors. The policy encourages inclusive education, by providing suppor t within public schools for learners with disabilities. Learners with a low level of suppor t need (level 1-3) will be included in the mainstream education system, while learners with a moderate level of suppor t need (level 4) will attend full service schools and special schools will cater for learners requiring the most intensive level of suppor t (level 5).

In 2001, it was estimated that 260 000 to 280 000 children with disabilities were out of school. In 2007, there were 102 057 learners enrolled in 416 special schools,5 compared to 87 865 learners in 404 special schools in 2005. In 2005, the 404 special schools represented 0.6% of all South African schools and excluded the 32 463 learners in regular schools. In 2005, SEN leaners represented about 0.64% of

the learner population (compared to an estimated 2-4% of learners who require this suppor t).6

The White Paper Policy on inclusive education The White Paper confirms a 20 year plan to transform 500 of the 20 000 primary schools into full-service schools. These schools will serve a dual purpose of catering for learners who require moderate suppor t, whilst acting as a resource for teachers and schools in the area. Fur thermore, the cost effectiveness of special needs schools is to be improved by conver ting them into resource centres, to complement the full ser vice schools and mainstream public schools with

special needs learners. These special needs schools will continue to suppor t learners with the most intensive level of suppor t and plans are in place to improve the teacher to learner ratios and the professionals’ ability to cope with severely disabled learners by increasing the quality of facilities and materials. In mainstream education, it is expected that teachers should focus on multilevel instruction to enable them to develop responsive teaching methods to deal with learners with behavioural problems. Guidelines for inclusive learning programmes were published in 2005, by the DoE. These guidelines are developed to guide teachers in adapting the National Curriculum Statement for all learners.7

Special Schools Shortages

L ack of precise data to support inclusive education In 2007, 3.95% of the population declared a disability and there appears to be a correlation between disabilities and poverty. However, the planning and monitoring of inclusive education is hindered by a lack of reliable data and accurate assessment procedures for identifying learners with disabilities. Fur ther, the various definitions of disability contained in the 2001 and 2007 census do not allow for reliable analysis over time. This undermines the ability to measure the impact of this policy over time. As the 2007 census does not have precise data

on children with disabilities, the 2001 census can give some insight with 3% of the population (585 589) under the age of 20 with disabilities.2

CHAPTER 6 INCLUSIVE EDUCATION AND EQUITY

Special schools across the country are battling to provide quality education for disabled learners, because of insufficient government subsidies. Most of the governing bodies of these special needs schools must raise millions of rands to maintain these ser vices.

•

Having a disability increases the chances of living in extreme pover ty, since the majority of disabled people are excluded from the society mainstream. Access to education and employment are lower for people with disabilities, with only 19% of disabled people being employed, compared to 35% of the non-disabled population for 2001.

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The governing body of Mar tie du Plessis school for cerebral palsy and severe specific learning difficulties, contributed an additional R2.1 million in funding last year for teacher's salaries and suppor t staff.

The need for inclusive education

1 Depar tment of Education, 200. | 2 OECD (2007), Review of National Policies for Education South Africa, p 268, OECD, Paris. | 3 Statistics South Africa, 2005. 4 OECD (2007), Review of National Policies for Education South Africa, p 274, OECD, Paris. | 5 DoE, 2009. Education Statistics in South Africa 2007, p 29. 6 White Paper 6. | 7 OECD (2007), Review of National Policies for Education South Africa, p 265, OECD, Paris.

People with disabilities have fewer opportunities to access education with 29.8% having no schooling, 34.6% attending primary education, 29.5% secondary education and only 2.9% higher education institutions.3 In 2001, the rate of people with disabilities without any formal schooling was twice as high (30%) as their non-disabled peers and access to education for children with disabilities between 6-18 years of age is, on average, 10% lower than for non-disabled children.4

•

At the Ukhamya K Msinga School in Nor thern Kwazulu-Natal, one qualified teacher and 3 teacher aides are battling to teach 162 pupils.

•

Pretoria's New Hope School for the disabled has to close its hostel over weekends after losing private funding. Most of the 43 pupils in the hostel cannot bath, feed or dress themselves.

Source: Govender, P. 2009. "Cash Strapped Special Schools hit by shor tages." Sunday Times. 31 May.

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CHAPTER 6 INCLUSIVE EDUCATION AND EQUITY

FINANCING OF INCLUSIVE EDUCATION AND SPECIAL NEEDS

KEY Achievements

F inancing of inclusive education and special needs Under current law, there are no designated funds for special needs education. The funds for special needs education comes from the general education budget for each province. There are no fiscal incentives for schools to accommodate special education needs (SEN) learners in public ordinary schools. However, there are plans to include these incentives in the new Norms and Standards for Inclusive Education. Special needs education costs four times as much as ordinary schooling.8 In 2005, there were 87 865 learners with special needs, which represents only 22% of the government estimate of the number of disabled or impaired learners in the country.9 Funding for inclusive education has improved from R1,8 billion in 2004/05 to R2,2 billion in 2007/08.10 However, the facilities are not sufficient to address the special needs requirements. The principles for financing inclusive education now intend to favour the development of fullservice schools rather than special schools, with the funding being reduced for special schools. In 2008/09, special schools received 60.1% of the funding for inclusive education. This will be reduced to 25.1% for 2010/11, while the funding for full-service schools will increase from 15.3% (2008/09) to 35.7% in 2010/11.11 The aim is to promote the development of district-based suppor t teams to service full-service and mainstream schools. Most ordinary schools are not, in their current circumstances, able to be fully inclusive without additional resources being 8 10 11 12

Depar tment of Education,2006d, p 64. | OECD (2007), Review of National Policies OECD (2007), Review of National Policies OECD (2007), Review of National Policies

9 for for for

C are dependency grant support for families provided, including staffing, building alterations, equipment and other resources. Full service schools are funded in the same way as other public ordinary schools, but the new norms and standards being developed will change this policy to one which is based on the level of suppor t needed for learners. This policy will require schools to qualify for additional funding, based on the screening, identification, assessment and suppor t (SIAS) policy.12 The OECD review expresses concern that the current strategy does not appear to be connected with the improvement of the quality of provision or with the requirement that special schools are to become resource centres. This concern centres on the fact that funding allocations are still based on the number of learners accommodated, rather than the needs of those learners. This leads special schools to focus on those learners who are in school and not on the learners who cannot attend mainstream schooling. They will also not accommodate learners who have not been anticipated in the budget, leading to long waiting lists. They are also reluctant to develop guidance services for mainstream schools as they are under-resourced to cope with the existing requirements. Without the development of adequate resource centres, mainstream schools will also be reluctant to offer inclusive education, given the limited resources within these schools to manage special needs education.

According to the OECD review, the implementation of the inclusive education policy outlined in White Paper 6 will require a clearly visible new institutional framework, suppor ted by incentives to encourage a change of behaviour in the education system. Currently, the lack of funding norms for inclusive education, together with reform fatigue may make provinces hesitant about implementing this new policy. Consequently, implementation has been limited to pilot projects, financed by foreign donors and individuals’ goodwill at ministerial and local level as well as cer tain strategies adopted by School Governing Bodies (SGB’s). Inclusive education is also seen as a constraint to efficient education and is open to opposition by the trade unions and other stakeholders. Instead of being seen as a constitutional right, inclusive education is often seen as a luxury to be reserved for the richer provinces.

“Funding for inclusive education has improved from R1,8 billion in

For families that have a child under the age of 18 with a severe disability and is in need of full time care, there is a Care Dependency Grant (CDG). However, this grant cannot be received in combination with the CSG. At the age of 18, this individual may have access to a Disability Grant. In 2007, 103 000 families with a disabled child, received a CDG. In 2005, this grant was the only source of income for the majority (79%) of families receiving the CDG for their disabled child.

S trategy on S creening , I dentification , A ssessment and Support ( S I A S ) In 2008 the DoE will introduce an intersectoral strategy on screening, identification, assessment and support (SIAS), aimed at ensuring more rigorous and consistent screening and assessment across the system. The SIAS is intended to foster parents’ involvement, as well as inter-departmental and inter-sectoral co-ordination of services.

2004/05 to R2,2 billion in 2007/08. ” 10

OECD (2007), Review of National Policies for Education South Africa, p 21, OECD, Paris. Education South Africa, p 69, OECD, Paris. Education South Africa, p 277, OECD, Paris. Education South Africa, p 267, OECD, Paris.

CHAPTER 6 INCLUSIVE EDUCATION AND EQUITY

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CHAPTER 6 INCLUSIVE EDUCATION AND EQUITY

The Status of Inclusive Education

T he S tatus of Inclusive E ducation From 2003, disabled learners’ access to education seems to have been improving. Schooling in specialised settings represents 22% of learners with disabilities (2001), representing the most frequently used way of educating these learners. Special schools enrol about 217 learners with an average learner to teacher ratio of 12:1 compared to the ordinary school ratio of 32:1. Access to these schools is difficult as many schools have waiting lists and are reluctant to accommodate learners with severe impairments. In theory, these schools offer the same curriculum as other schools. These schools do not always have the necessary teachers, paramedical and medical suppor t to provide learners with good learning conditions and they are reliant on public fundraising for additional suppor t. Disabled learners in mainstream education face many obstacles, including physical barriers (lack of ramps, paved access etc) and social barriers as teachers, parents and learners are reluctant to include these children. These learners are often directed away from the mainstream schools to special schools. In 2007, 93 000 learners were redirected, compared to 77 752 in 2004.

Recommendations from the OECD Review

•

evelop a precise, consistent and reliable data gathering system on inclusive education, focusing on the enabling D effect of policies and practices.

•

Strengthen incentives and suppor t at all levels, to encourage schools to implement tools to assess and suppor t learners’ needs and to customise educational approaches.

•

Suppor t special schools more effectively in their new roles as suppor t centres, by improving facilities as well as by empowering teachers and social workers to provide appropriate services and guidance.

•

Make all schools accountable for their inclusive education strategies and link modes of funding with performance management.

•

Training schemes offered to teachers, social workers and paramedical personnel should focus on problem solving and methods for developing learners’ strengths and competencies rather than shor tcomings.

•

The Depar tments of Education, Social Development, Health and Labour should co-ordinate their policies at all levels in order to develop multi-sectoral approaches to improve the appropriateness of services to encourage learners’ transition oppor tunities.

•

Improve distance learning oppor tunities to overcome, in the shor t term, physical barriers, such as transpor t issues, to improve disabled learners education oppor tunities.

•

Develop measures and initiatives to empower parents and learners to be aware of their rights and needs to par ticipate in the educational process.

CHAPTER 6 INCLUSIVE EDUCATION AND EQUITY

EDUCATION HANDBOOK

CHAPTER 6 INCLUSIVE EDUCATION AND EQUITY

THE UP WITH DOWN’S PROJECT

T HE UP WITH DOWN’S PRO J E C T Up with Down’s was originally set up as a parent support group for families with Down’s Syndrome children. It was decided by the parents that the setting up of a school in George was a priority, and after receiving Ministerial approval in March 1999, we began operating the next month. At that stage a qualified remedial teacher, an Educare qualified assistant, and an in house trained assistant were employed. The school operated out of a classroom rented from the high school.

H ow does the Up with Down ’s Project make a difference in education? As the seniors needed more than just the morning program, we star ted an afternoon program, the purpose of which was to teach them life-skills, independence, and offer them other avenues of learning that the school morning was too shor t to provide. This included general household chores, baking, fabric painting, gardening, library visits and the occasional visit to movies and the Spur, Wimpy or McDonalds. In 2007 the house right next to the school was bought by 2 friends of the school. This helped us to fulfill another goal: to provide a home from home for our teenagers who needed to take their first step towards independence, and make the break from their parents. By January 2009 our junior class had grown to 10 children, and there was a desperate need for a new group. We employed a new teacher and assistant, and moved the younger children into the garage where they still have their classroom.

What are the current challenges the U p with Down’ s Project is facing ? Our main problem has been funding, as we receive no subsidies whatsoever. Despite vigorous fund raising by the parent body, we are still operating at a substantial loss every month. We try to keep our school fees as low as possible to provide education for all, and try to get sponsorships for those who can’t afford the R665 a month school fees. Despite these effor ts, our expenses still far outweigh our income. Our greatest needs at the moment are 2 new classrooms and another bus.

H ow can these challenges be overcome ? These challenges can be overcome by organizing four big fundraisers annually instead of small fundraisers every month. Our fundraiser covers a large spectrum of the population. Our main function is a formal Wine Auction at Fancour t. This is aimed at a cer tain sector of the population who can afford to attend and who are interested in good wine. Fundraisers are never easy but with a lot of hard work it can be done and the community is very generous once they know what the funds will be used for.

Why is the Up with Down ’s Project so successful ? There are not a lot of programmes that are directed at people and children with special needs. This programme aims at educating these people with life skills and knowledge as well as providing a secure and loving environment that is not discriminator y or degrading. We love children and working with people and our passion is carried through our work and how we nur ture and teach children with special needs.

THE UP WITH DOWN’S PROJECT

NON GOVERNMENT ORGANISATIONS

Tel: +27 (0) 44 870 8770 |

Email: info@upwithdowns.net

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NON GOVERNMENT ORGANISATIONS

5-Star Education Model

CHAPTER 7

GET, EDUCATION QUALITY & LEARNER ACHIEVEMENTS

GENERAL EDUCATION AND TRAINING OVERVIEW

Time to Connect Building on the foundation of the Education Handbook, www.teacher.org.za is a new online platform with up-to-date information about the key repor ts, issues and initiatives covered in this publication.

With Argo’s Stars Portfolio you can support, inspire and empower teachers where it matters most. Everyday in every classroom across South Africa. • The National Teacher’s Diary is distributed to over 240 000 teachers. It is designed to help teachers develop practical time management skills and features information on educational development, self-image and advice on useful resources. • The National Teacher’s Guide is distributed to over 150 000 teachers and offers vital life skills information to help educators prepare our young leaders for their future. • The Stars in Education Awards recognizes the central role that teachers play in our communities and celebrates

those who have gone beyond their call of duty to actively contribute to social upliftment.

We’d like to hear your comments and suggestions on how we can improve and expand both the website and the next edition of the Education Handbook. Log onto

• The Education Handbook provides an up-to-date overview of education in South Africa and provides key stakeholders with a unique opportunity to collaborate and participate to make a discernible difference.

ACCESS TO EDUCATION

ENROLMENT RATES

LEARNER RETENTION

REPETITION RATES

PROBLEMS EXPERIENCED BY LEARNERS

LEARNER ACHIEVEMENTS

THE MLA PROJECT

THE TIMSS STUDIES

THE PIRLS STUDIES

THE SACMEQ STUDY

NATIONAL SENIOR CERTIFICATE (NSC) RESULTS

IMPROVING LITERACY AND NUMERACY ON THE GROUND - WHAT DOES IT TAKE?

OECD REVIEW OF LEARNERS ACHIEVEMENTS

EDUCATIONAL INITIATIVES TO IMPROVE EDUCATION QUALITY

100

www.teacher.org.za today and post

FOUNDATION FOR LEARNING STRATEGY

100

your comments to make a real difference.

READING LITERACY

100

THE DINALEDI SCHOOLS

100

THE QUIDS UP PROGRAMME

102

THE NEIMS

102

THE IQMS

102

TEACHER BURSARIES

103

• www.teacher.org.za in an online platform where roleplayers in the education arena can pro-actively share ideas and help to shape solutions to improve the quality of education for all.

For more information about the Stars Portfolio special offers, call Argo today to secure your place amongst the Stars in Education.

021 865 2813 | info@argo.org.za | www.argo.org.za

CHAPTER 7 GET, EDUCATION QUALITY AND LEARNER ACHIEVEMENTS

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CHAPTER 7 GET, EDUCATION QUALITY AND LEARNER ACHIEVEMENTS

GENERAL EDUCATION AND TRAINING OVERVIEW

This section focuses on General Education and Training (GET), which includes grade R to grade 3 (foundation phase), grades 4 to 6 (intermediate phase), grades 7 to 9 (senior phase) and grade 10 to 12 (FET phase).

P roblems experienced by learners

The main problems experienced by learners at school are listed below, in order

GENERAL EDUCATION AND TRAINING OVERVIEW

of priority5: • A lack of books, which is compounded by a

Access to education It is a consistent finding worldwide that those who fail to complete basic schooling are most at risk of marginalisation, unemployment or low-income jobs. In most OECD countries, upper secondary education is necessary to improve the prospect of earning a reasonable living. In this respect, South Africa is considered to be doing well, with no single age group between 7-15 recording less than 95% enrolment by 2004. Of those who complete the intermediate phase, 96% go on to the senior phase with over 92% of the relevant age group completing basic education.

E nrollment rates In 2003, a 96.6% enrolment for 7-15 age group was achieved, with the majority of these learners reaching the end of compulsory schooling (grade 9).1 Levels of education attainment have grown from 88% (1995) to 93% (2003) for the 9-23 age group achieving grade 7. For grade 9, the growth is from 75% (1995) to 82% (2003). In addition, the enrolments of six-year olds have risen significantly with the phasing in of grade R, which is expected to be completed by 2010.2

In April 2007, the Ministerial Committee on learner retention identified that there were high failure rates, repetition and drop-out in grades 10 -12. There is a significant drop in attendance rates for the 16-18 age group, with reasons for drop-out including the value perception of education among certain groups.3

L earner retention Completion rates drop significantly after compulsory education is completed, with only 50% of the age group taking the grade 12 exams. It is from the age of 16 that the propor tion of learners star ts to decline, although the propor tion remains high by international standards. Over 75% of 17 -18 year olds are still in the education system, with significant numbers of learners taking more than 9 years to complete compulsory basic education. Grade specific enrolment rates need to be treated with caution, given the repetition rate. Net enrolment rates are more relevant in assessing drop-out rates.

R epetition rates International studies indicate that grade repetition increases the risk of drop-out. Outcomes based education aligns with this view, allowing for automatic promotion of learners, independent of the skills acquired. The OECD review suppor ts this strategy, provided a strong, effective learner suppor t and remediation strategy is in place. The best approach to learner underachievement is early diagnosis of learner difficulties and prompt, targeted suppor t and remediation. However, this is difficult in large classes and where teachers do not have the experience in diagnostic assessment. This results in learners becoming victims of silent exclusion, as they cannot keep up with classroom work.4

CHAPTER 7 GET, EDUCATION QUALITY AND LEARNER ACHIEVEMENTS

(In 2004, 46% of grade 6 learners did not have access to a library at school.6 ) • High fees • Poor facilities • Large class sizes • A lack of teachers and poor teaching. In 2003, 20% of teachers admitted to using

No single age group between 7-15 recorded less than 95% enrolment by 2004.

corporal punishment, a means of discipline legally prohibited seven years previously.7

5 Depar tment of Education, 2006f, p 40. 6 Depar tment of Education, 2005c, p 29-30. 7 NMF, 2005, p 92-94.

1 Depar tment of Education, 2006f, p 37. | 2 OECD (2007), Review of National Policies for Education South Africa, p 192, OECD, Paris. 3 Depar tment of Education, 2006f, p 33. | 4 OECD (2007), Review of National Policies for Education South Africa, p 195, OECD, Paris.

lack of libraries.

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CHAPTER 7 GET, EDUCATION QUALITY AND LEARNER ACHIEVEMENTS

LEARNER ACHIEVEMENTS

THE PIRLS STUDY

The P I R L S study

Learner achievements

The 2006 PIRLS results place South Africa at the bottom of 40 participating countries with a score of 302 (average score: 500). The average South African learner age was 11.9 compared to the assessment age of 10.13

550 500 450 400

The MLA project

350 300

Morocco

South Africa

Qatar

Kuwait

Iran

Indonesia

Trinidad and Tobago

Georgia

Macedonia

Norway

Romania

Moldova

Belgium (French)

Israel

Iceland

Spain

Poland

France

Slovenia

Scotland

New Zealand

Slovak Republic

Chinese Taipei

Canada, Quebec

Austria

Lithuania

England

Latvia

United States

Canada, Nova Scotia

Bulgaria

Denmark

Netherlands

Belgium (Flemish)

Sweden

Germany

Italy

Hungary

Luxembourg

250 Canada, Ontario

Results from the MLA project ranked South Africa the lowest out of 12 par ticipating African countries for numeracy (5th lowest for literacy and 3rd lowest in life skills).11 However, UNESCO and UNICEF have distanced themselves from this study, because of doubts about technical quality.12

Singapore

Four international learning achievement assessments indicate that South African

600

da, British Columbia

In 2002, systematic evaluation of learner achievements confirmed that levels were

The problem is education quality, as demonstrated by SA performance in literacy

Canada, Alberta

National systemic testing is completed at grades 3 and 6 by the Systematic Evaluations Directorate of the DoE, to monitor learning over time. The OECD review confirms that the grade 3 evaluation provides an early warning tool for identifying remedial areas early in the system, provided this results in timely learner suppor t to address any areas for improvement.8

These results also indicated large variations by province, with Limpopo having the lowest averages across the learning areas. There is also a great difference in learner achievements between the wealthier schools and the rest of the schooling system. The top level of schools had performance scores of 50% to 75% higher than the next school level. This indicates that meaningful access to education, as opposed to mere physical access, remains elusive to the majority.10

children perform exceptionally poorly compared to other par ticipating countries. These studies include the Monitoring Learning Achievement (MLA) project, Trends in International Mathematics and Science Study (TIMSS), the Progress in International Reading Literacy Study (PIRLS) and the Southern and Eastern African Consor tium for Monitoring Educational Quality (SACMEQ).

Russia

low, with achievement levels for grade 3 learners at 30% for numeracy and 39% for reading comprehension. In 2004, grade 6 learners achieved lower averages of 27% for mathematics and 38% for languages.9

Hong Kong

Access to education and levels of education achievement have improved, but the learnersâ&#x20AC;&#x2122; levels of achievement in South Africa are not in line with the financial investment being made. This is the conclusion reached by the OECD repor t, on the basis of both local and international measures and studies that are available.

Source: PIRLS, 2006 in Education Roadmap: Focus on Schooling System, DBSA, November 2008, p 7. Implications of results: Only top 6-10% of SA students at level of top 75% of developed countries

T he T I M S S studies South Africa par ticipated in the TIMSS studies in 1995, 1999 and 2003.The studies measured grade 8 learning achievements in mathematics and science in several countries over this period.South Africaâ&#x20AC;&#x2122;s performance in both the 1999 and the 2003 studies were disappointing with lower average scores in both mathematics and science than all other par ticipating countries (including African countries such as Morocco,Tunisia and Botswana).

100%

10%

South Africa: TIMSS Maths

South Africa: TIMSS Science

90% 80%

The problem is education quality, as demonstrated by SA performance in maths

70%

% of Students

700 600 500 400 300 200

60%

75%

50% 40% 30%

100 0 Ghana

South Africa

Botswana

Saudi Arabia

Philippines

Chile

Morocco

Egypt

Palestine

Tunisia

Iran

Indonesia

Jordan

Lebanon

Moldova

Macedonia

Bulgaria

Romania

Armenia

Serbia & M.

Lithuania

Latvia

Russia

Slovakia

Malaysia

Estonia

Hngary

Cyprus

Bahrain

Italy

Norway

Slovenia

Israel

New Zealand

England

Scotland

USA

Sweden

Australia

Netherlands

Japan

Belgium

Taiwan

Korea

Hong Kong

Singapore

20% 10% 0% Developed Countries

Source: TIMSS, 2003 in Education Roadmap: Focus on Schooling System, DBSA, November 2008, p 8.

South Africa: PIRLS

Source: Education Roadmap: Focus on Schooling System, DBSA, November 2008, p 9. 8 OECD (2007), Review of National Policies for Education South Africa, p 196, OECD, Paris. | 9 Department of Education, 2005c. | 10 Crouch, 2005. 11 OECD (2007), Review of National Policies for Education South Africa, p 21, OECD, Paris. | 12 OECD (2007), Review of National Policies for Education South Africa, p 207, OECD, Paris.

13 OECD (2007), Review of National Policies for Education South Africa, p 189, OECD, Paris.

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CHAPTER 7 GET, EDUCATION QUALITY AND LEARNER ACHIEVEMENTS

The SACMEQ study AND THE National Senior Certificate (NSC) results

T he S AC M E Q study The SACMEQ study covered a small, statistically adequate, sample of 168 schools and 3 163 grade 6 learners (0.3%). The SACMEQ data suggests that the management of learner repetition is crucial for improving performance scores, which has implications for education policy. 14 The current South African policy confirms that no learners should repeat a phase more than once, whilst the SACMEQ data indicated that about 15% of learners were exceeding this benchmark and that the levels of repetition prevailing in 2000 were not satisfactor y for both learners and their peers. Continuous assessment also forms the basis of Outcomes Based Education (OBE), with a nationally set Common Task for Assessment (CTA) for each learning area in grade 9, which is moderated by Umalusi. The CTA’s were being piloted during the OECD visit.15 There is some support for an all-external grade 9 examination on the basis that it could act as a motivator for teachers and learners to work harder, but the OECD raised concerns about introducing an external exam that may turn into a selection exam for grade 10 and create an insurmountable barrier for underachieving learners.

N ational S enior C ertificate (NSC) results The current NSC is the largest public examination in South Africa and the results determine which learners will graduate and where they will go in the South African society. Learners who fail may get an unskilled job, whilst those that pass with endorsement qualify for university.

STUDIES, SURVEYS AND RESULTS

The pass rate for the 2007 NSC was 65,2%, which was higher than the 47,1% achieved in 1997, but down 1% from 2006, which reflects the downward drift from 2004 to 2007. This is probably a consequence of larger number of learners being enrolled in the examinations or changes to the quality of the examination papers. It is concerning that about 50% of poor schools (quintile 1 and 2) have pass rates of 55% or lower. The FET colleges also offer the National Cer tificate (Vocational) (NC(V)) based on the new curriculum with a foundation component and a vocational component, which requires “Integrated Summative Assessment Tasks” (ISATs) that test practical skills and applied knowledge. Market credibility of the NSC Concerns have been raised by both Umalusi and the OECD review, which relate to: •

the dropping of the pass rate (from 70 to 50%),

•

sufficient evidence of practical tasks, and

•

ISAT’s are not based on explicit assessment criteria.

These concerns relate to the market credibility of the qualification, par ticularly with regard to developing practical vocational skills. Considering the substantial investment that has been made in FET colleges, it is impor tant to monitor, protect and enhance the market value of the NC(V).16

The propor tion of learners achieving university endorsement has dropped from 18.6% (2003) to 15.6% in 2007, which presents a challenge to the education system. 17 The number of students entering university remains above 85 000 each year, but the high drop-out rates (almost 50%) reduce the number of qualified graduates entering the labour market. This is fur ther compounded by the scarcity of learners opting for mathematics and science at grade 12 levels, which impacts on the nation’s urgent requirements for skilled personnel in engineering, science and technology.

14 Gustafsson, 2005. | 15 OECD (2007), Review of National Policies for Education South Africa, p 196, OECD, Paris. 16 OECD (2007), Review of National Policies for Education South Africa, p 206, OECD, Paris. 17 EMIS, Report on the Senior Certificate Examination, Department of Education, Pretoria.

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CHAPTER 7 GET, EDUCATION QUALITY AND LEARNER ACHIEVEMENTS

IMPROVING LITERACY AND NUMERACY ON THE GROUND - WHAT DOES IT TAKE?

IMPROVING LITERACY AND NUMERACY ON THE GROUND WHAT DOES IT TAKE?

Table 2: Percentage of Grade 3 learners who are competent at numeracy per grade level.

Grade 1

I N S I G H T S F ROM MR BRUCE NILAND, H E A D M A S T E R OF RHENISH PRIMARY SCHOOL. Rhenish primary school has been recognised as the top school in the Western Cape for mathematics at Grade 6 level for the past 6 years. The school has also achieved second place in literacy in the Western Cape for the same period. Fur ther, Rhenish primary is a key feeder school, along with Stellenbosch primary school (who achieved second position in the mathematics rankings), for Paul Roos high school, which has been recognised as the top maths and science school in the province. Rhenish primary school’s achievements are reviewed in the context of the extensive research commissioned by the Western Cape Education Depar tment (WCED), which commenced in 2002. This study is used to inform a comprehensive programme to improve literacy and numeracy performance in the province. This programme is delivering results as the Western Cape is recognised as the leading province in achieving results in literacy. The WCED targets the entire cohor t of learners in Grade 3 and 6, to allow for the research to drill down to learner, class, school, circuit, district and provincial level, to assess progress and to identify areas that need fur ther attention. In 2008, a total of 74 119 learners at 1 066 primary schools took par t in the study across the Western Cape, which was the four th study of Grade 3 learners since 2002. The studies have used the same test items to ensure comparable results across the years. The pass rate for Literacy has improved by 17.8% since the study began in 2002, when 35.7% of learners achieved more than 50%. In 2008, 53.5% of learners are now achieving more than 50%, which is in line with the WCED target of 50%.

Grade 2

Grade 3

Grade 4

Ave Mark %

Pass %

Ave Mark %

Pass %

Ave Mark %

Pass %

Ave Mark %

Pass %

Rhenish Primary School

89.6

98.9

82.2

100.0

79.0

98.9

61.5

77.3

Stellenbosch Schools

72.6

82.0

49.6

50.2

43.1

38.1

27.9

19.9

Cape Winelands EMDC

64.7

72.7

42.8

40.4

35.5

28.4

23.6

14.8

Western Cape

69.6

79.0

47.4

48.0

39.5

34.9

25.7

16.8

Source: Niland, B. 2009. Grade 3 Assessment in 2008. Rhenish Primary school circular,15 April.

Table 3: Percentage of Grade 3 learners who are competent at literacy per grade level.

Grade 1

Grade 2

Grade 3

Ave Mark %

Pass %

Ave Mark %

Pass %

Ave Mark %

Pass %

Rhenish Primary School

99.4

100.0

96.8

100.0

91.7

100.0

Stellenbosch Schools

94.4

98.7

78.1

91.8

49.9

51.9

Cape Winelands EMDC

92.6

97.2

74.1

88.0

43.7

44.0

Western Cape

93.4

97.5

75.1

87.6

50.4

53.5

The pass rate for numeracy has fluctuated from 37.1% in 2002, 37.3% in 2004, 31% in 2006 and 35% in 2008, which indicates that numeracy is still a major challenge to be addressed.

Table 1: Western Cape Literacy and Numeracy pass rates, 2002 – 2008.

2002

2004

2006

2008

Literacy

35.7%

39.5%

47.7%

53.5%

Numeracy

37.1%

37.3%

31%

35%

Source: WCED, Media Releases, 6 March 2009. | Gabru,Y. 2009. Grade 3 literacy results show continued improvement. http://wced.wcape.gov.za/comms/press/2009/36_litnum.html accessed on the 28/04/2009.

Source: Niland, B. 2009. Grade 3 Assessment in 2008. Rhenish Primary school circular,15 April.

These tables highlight the achievements of Rhenish primary school, led by the experienced Head, Mr Bruce Niland, who was recognised with a lifetime achievement award in 2005. As a school leader, Mr Niland has a wealth of experience, which is evidenced by the achievements of the school and also in his coaching of other schools it the area, which are achieving strong improvements in these critical areas of education. Excerpts from a personal interview with Mr Niland are included below to provide insights into what it takes to improve numeracy and literacy in our schools.

The WCED has introduced various literacy and numeracy interventions since 2002, including diagnostic tests, classroom suppor t, special teaching and learning suppor t materials, teacher training, special programmes by districts and schools and family learning activities. In addition, the WCED has formed a team of more than 100 specialists who work full time with the schools to improve performance. The depar tment has also appointed more than 500 teaching assistants to suppor t Foundation Phase teachers in poor schools, on a trial basis. The literacy and numeracy strategy now forms part of the national Foundations for Learning campaign, which was launched in 2008.

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“The number one contributor to achieving quality education is quality teaching and time on task.” Bruce Niland, Rhenish primary school EDUCATION HANDBOOK

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key essentials AND KEY CHALLENGES

What are the key essentials to ensuring quality education ? 1. It is essential to have a reception class, which is taught by a qualified teacher. The reception class should not be seen as a crèche and this vital year should not be left out of the equation. 2. Everyone needs to buy into a vision of success and believe in quality education. This includes the teachers, who need to ensure that they are prepared, on time and committed to teaching the children. It also includes the learners being committed to being on time at school, being respectful of teachers and doing the homework that needs to be done. Teaching is a calling and the fulfillment that teaching gives is the key driver of a dedicated, committed teacher. This requires going the extra mile and providing extra mural suppor t, where learners are struggling. It also requires appreciation by parents of the role that teachers play in the lives of their children. It is rare that parents thank teachers for taking the time to coach children in spor t or extra-mural activities. 3. Quality education star ts at foundation level. This is the basis for all education and it is essential that we get the basics of reading, writing and mathematics correct, before progressing to other levels. Streaming of children will provide greater flexibility and tolerance for different levels of achievement. We should ignore the walls between classrooms and allow children to join the group that reflects their level of learning. Advanced maths learners should be encouraged to join higher levels and children struggling on other levels should be comfor table to first develop the basics at a lower level, irrespective of the child’s age. This would also address the challenge of inclusive education, where teachers are expected to set different tasks for children who cannot achieve the level of work required for that grade. Learners should also be allowed to progress to different levels during the school year, and not just in December. 4. There needs to be an infrastructure with clear role definitions to ensure that quality is built into the system. If one teacher sets a test paper, this paper should be approved by the other teachers in that grade and moderated by the learning area head. The headmaster also needs to moderate results to ensure that a bell curve exists in the results and then to ensure that action is taken to suppor t poor performing learners. The teacher needs to set extra work to enable these learners to improve. 5. Everyone needs to buy into the ethos of quality education and accept the responsibility for delivering on expectations. Education is a team approach and requires commitment from the teacher, the parents, the child and any other suppor t professionals, who can make a difference. 6. We need principals that manage time tables, financing and staff resources to ensure that teachers are in school teaching. There are too many incidents of early Friday’s and shor tening of school days. If timetables are not managed, then children spend the day playing at school, when teachers are off sick. 7. Each school needs clear benchmarks against which to assess learner development. At present, the guidelines are too vague and make references such as “understanding text”. Not all schools need to have the same benchmarks and each school should have its own school improvement plan. 8. The focus should be on the learners who are not coping in the system, to avoid illiteracy. There should also be scope to extend the talented children, to encourage potential.

What are the key challenges to be addressed in ensuring quality education ? 1. Teachers are expected to teach, be welfare officers and disciplinarians and complete too much administration. 2. Education is top heavy with administrators – we need more teachers, not administrators. 3. Inclusive education can be exclusive, as it is not reasonable to expect a teacher to prepare separate lesson plans for these learners in overcrowded classrooms. If each class has on average 30 children and the expectations are that a teacher spends 10 minutes on evaluation per day, this would equate to 5 hours after school every day, which is unreasonable given the extra mural requirements. 4. The modern environment impacts on learning as learner comprehension is decreasing (less time communicating with parents), their ability to sit through a school day is decreasing as more time is spent watching television. Learners need more parental supervision and engagement.

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“Teaching is a calling, which requires dedication and commitment but the rewards of teaching children provide fulfillment that cannot be achieved in a corporate environment. Most children want to please you and we need to find something that the child is good at.” Bruce Niland, Rhenish primar y

EDUCATION HANDBOOK

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OECD review of learners achievements

OECD review of learners achievements Whilst it is true in education, that “you get what you test”, the OECD review draws attention to the need to improve the quality of learning and to the additional burden placed on teachers with additional assessment requirements. Fur thermore, it is essential that fairness is ensured in testing, and that learners are aware of what is required and that sufficient time for preparation is allowed. Whilst South Africa has invested significantly in these studies, the OECD review concludes that nothing is learnt from the results. There is limited feedback into the curriculum revision and limited secondary analysis is conducted. The OECD review suggests more in-depth secondary analysis of the data from these studies, so that learning blockages can be identified and scarce resources better targeted at addressing these obstacles. It is also clear from the data, that “the large backlogs in educational provision and the inherited disparities in socio-economic status have a formidable impact on learning and future well-being.”18 Whilst the DoE is right to be concerned about these learning outcomes, the OECD review recommends that this concern needs to extend to the underachieving learners who are in the system now and have progressed past the foundation for learning stage.19 According to the OECD review, better management of repetition by reducing class sizes, targeted remediation and improving teachers’ capacity for early detection of problems would make a considerable difference.

The most cost-effective current expenditure interventions appear to be ensuring that learners have “the minimum acceptable level of access to textbooks and that they arrive at school every day, on time and reasonably nourished”.20 Whilst access to education and equity within education is improving, there are concerns about the quality of education, as evidenced by these learner achievements in the various studies. Given the legislative, policy, research and financial resources invested in education, the performance of the system is disappointing.

The quality of education is challenged by: • inadequate infrastructure and resources, • large class sizes, • low commitment levels of teachers and learners, and • inexperienced parents.

The reasons identified include: • inadequate preparation, • language issues, • shor tages of learning materials, and • limited oppor tunity to learn. Many teaching hours are lost to teacher absenteeism, learners’ lack of punctuality and unproductive work. An example is the copying of notes off the blackboard, because of textbook shor tages. In terms of language issues, available data confirms that learners that are taught in their home language by teachers of the same language achieve better results than learners who study in a different language.

“The OECD review confirmed that investment in

This has resulted in unjustifiable levels of repetition and post-compulsor y dropout rates.

education inputs

The OECD review confirmed that despite considerable investment in education inputs (policy, finance, infrastructure, books and materials) and processes (curriculum, teaching and school leadership), the learner achievements are low, relative to other countries.

the learner

CHAPTER 7 GET, EDUCATION QUALITY AND LEARNER ACHIEVEMENTS

•

“One of the most disturbing findings was that, although books were available for both language and maths in all but two of the schools, no books were seen being used in 43% of language classes and 69% of maths classes.”

•

“The most common form of reading in these classes consisted of teachers writing 3 or 4 sentences on the board and then leading the reading of these, with children following in chorus.”

•

“When faced with these practices, it is no wonder that South African children are not learning to read.”

•

“Similarly, an examination of the books of these children revealed that in the majority of classes children engage in writing exercises no more than once a week. What little writing is done consists predominantly of exercises composed of isolated words; sentences are seldom seen, while longer passages are vir tually non-existent.”

despite considerable

and processes achievements are low, relative to other countries.”

Source: Taylor et al., 49: 2008. Office of the President. 15 year review input paper.

18 OECD (2007), Review of National Policies for Education South Africa, p 209, OECD, Paris. 19 OECD (2007), Review of National Policies for Education South Africa, p 189, OECD, Paris. 20 OECD (2007), Review of National Policies for Education South Africa, p 208-209, OECD, Paris

Teaching Practices

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EDUCATIONAL INITIATIVES TO IMPROVE EDUCATION QUALITY

E DUC ATIONAL I N ITIATIVE S TO I M PROVE E DUC ATION QUALITY

The DoE recognises that education quality does not automatically flow from improved equality and equity.21 Education is a composite product with a range of complex educational inputs and practices. The DoE has instituted a number of initiatives to address these challenges: F oundation for Learning S trategy In response to the disappointing learner achievements, the former Minister of Education launched a four year Foundation for Learning (2007-2011) strategy on the 18 March 2008. The strategy aims to ensure quality education in the first years that a child spends at school, with the focus on grades R to 3. This foundation is then consolidated in the intermediate phase (grades 4 to 6).

The strategy was gazetted on the 14 March 2008 and focuses on improving average learner performance in literacy, language, numeracy and mathematics to no less than 50%, which implies an improvement of between 15-20% by 2011.22 The strategy calls for a commitment from learners, parents and teachers. The aim is to lay a solid foundation in languages and mathematics in the foundation and intermediate phases. The projected measure of the campaign is to increase average learner performance to no less than 50% in the four years of the campaign. A national evaluation is planned for 2011. Teacher development forms one of the cornerstones of the campaign and principals are challenged to develop strategic plans to motivate and inspire teachers and learners to achieve these targets.23 Monitoring of the programme is the joint responsibility of the DoE and the provincial depar tments and it is expected that district officials must visit schools within the district at least once per term to ensure that regular tests are being done and that the results are being reported to parents. At the end of 2011, a national evaluation will be conducted for grade 3 to 6 learners. This initiative is welcomed by the OECD review and it is expected that it will generate significant improvements in learners’ results.

Reading literacy The ability to read is central to all learning and the DoE places great emphasis on the early acquisition of reading literacy as par t of the national reading initiative. This includes the Early Grade Reading Assessment (EGRA) and the Molteno Project, “breakthrough to literacy”. Average student gains of up to 30% have been repor ted, where EGRA is used. It has also been incorporated into the reading toolkits linked to the Foundation for Learning Campaign.24 A similar effor t is being planned for foundation numeracy. Literacy and numeracy strategies are already in place in at least two provinces (Gauteng, in co-operation with READ Educational Trust, and the Western Cape’s Literacy and Numeracy strategy 2006-2009) and these initiatives are already bearing fruit and helping to win the “war on the failure of foundational learning in our schools” – Former Minister of Education, Naledi Pandor, 30 November 2007.25

The Dinaledi schools In 2001, the Dinaledi (“star”) schools initiative targeted 102 schools in disadvantaged areas to improve par ticipation in maths and science, by providing extra resources. By 2008, this initiative had grown to 500 schools and the aim is to have 50 000 higher-level passes in mathematics by 2009 (up from 25 000 in 2007), which would be a major achievement. The OECD review confirmed that the results of this initiative are encouraging.26

21 Depar tment of Education, 2007b. | 22 OECD (2007), Review of National Policies for Education South Africa, p 172, OECD, Paris. 23 OECD (2007), Review of National Policies for Education South Africa, p 58, OECD, Paris. | 24 OECD (2007), Review of National Policies for Education South Africa, p 188, OECD, Paris. 25 OECD (2007), Review of National Policies for Education South Africa, p 189, OECD, Paris. | 26 OECD (2007), Review of National Policies for Education South Africa, p 205, OECD, Paris.

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EDUCATIONAL INITIATIVES TO IMPROVE EDUCATION QUALITY

T he Q U I D S UP programme The QUIDS UP programme is aimed at providing teacher and district development suppor t to 5 000 low performing primary schools. The expected budget is R12,5 billion over the first 5 years.27

T he N ational Education Infrastructure Management System (NEIMS) NEIMS has been established to track the state of infrastructure in schools, including

water, electricity, sanitation, facilities and access to ICT.28

T he Integrated Quality Management System (IQMS) The IQMS is a quality management system for teacher development. The budget for this system is R87 million for 2007-2009. 29 A planned National Education Evaluation Development Unit (NEEDU) is aimed at teacher performance improvement. Continuous teacher development is overseen by the South African Council of Educators (SACE), but there is union resistance to the concepts of performance assessment

EDUCATIONAL INITIATIVES TO IMPROVE EDUCATION QUALITY

and inspectorates. An advanced cer tificate in education was introduced in June 2007 and it is expected that 500 principals will register. 30

E xtract from the Report on the National Education E valuation and Development Unit ( N E E D U )

Teacher bursaries

Key Findings

Teacher demand and supply is being targeted with the provision of bursaries and with better utilisation. 31 Despite the challenges, it is recognised by the OECD review that the Government has achieved substantial strides since the first democratic elections and that pressure for accountability needs to remain. 32

27 Depar tment of Education, 2006a. | 28 OECD (2007), Review of National Policies for Education South Africa, p 94, OECD, Paris. 29 Depar tment of Education, 2007e. | 30 Depar tment of Education, 2007e. | 31 OECD (2007), Review of National Policies for Education South Africa, p 95, OECD, Paris. 32 OECD (2007), Review of National Policies for Education South Africa, p 95, OECD, Paris.

The Key Findings By The Ministerial Committee Chaired By Professor Jonathan Jansen And Presented On The 19 May 2009.

•

That there is broad recognition of the crisis in education and the limitations of existing evaluation instruments to, in themselves, remedy the situation

•

That there is widespread consensus on the need for stronger accountability measures alongside developmental suppor t to be introduced into the school system

•

That there is reluctance in some quar ters to change existing monitoring and evaluation initiatives not only because of the potential disruption but also because recent measures (such as IQMS) have not yet had enough time for expression in educational practice

•

That there is considerable variation in the capacity of provinces and schools for the interpretation and implementation of elisting evaluation and development measures

•

That both authority and exper tise at all levels (teacher, HOD, principal, school, district, province, national) remain impor tant requirements for çffective implementation of monitoring and evaluation

•

That deeper and more fundamental problems (e.g. curriculum organization, time on task, school dysfunctionality) undermine sophisticated effor ts to monitor and evaluate school and teacher performance

•

That the system for evaluating teachers and schools is still considerably immature, with the incapacity for seif-scrutiny among many (though cer tainly not all) professionals

•

That the issue of excessive complexity in existing evaluation instruments is still not resolved inside the crowded ecology of evaluation, appraisal and development policies, plans and processes

•

That the existing system for evaluation and appraisal faces a growing credibility crisis because of the functional breakdown between school/teacher evaluation and develop mental follow through actions to effectively address problems idetified

•

That the co-mingling of developmentally-focused evaluation and remuneration-focused appraisal compromises the validity of measures of school or teacher performance

•

That in practice the evaluation instruments do not monitor the impact of policy on teaching and learning; they monitor policy compliance

•

That the failure to separate curriculum suppor t and advisory roles from curriculum monitoring roles constrains the credibility of both

•

That there is an unspoken complicity between school and district that compromises the monitoring of IQMS educator performance

•

That leadership is critical at provincial and school level to make the best out of the complexity of evaluation and development effor ts and instruments

This is an extract of the repor t as published by the Depar tment of Education on April 18 2009. Source: http://www.politicsweb.co.za/politicsweb/view/politicsweb/en/page71656?oid=129741&sn=Detail.

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THE SHAPE OF THINGS TO COME

CHAPTER 8

Teacher.org.za is an online platform where key

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stakeholders in the Education Arena can connect, collaborate and participate to make a discernible difference to the future of our children. Drawing from research and development work that was used for the Education Handbook, www.teacher.org.za will provide an up-to date overview of the key issues and initiatives that influence education in South Africa.

Featuring a real-time blog and regular updates, it is set to become the leading source of education-related information in the country. Most importantly, it will provide key role-players with a dynamic opportunity to pro-actively get involved, share ideas and identify solutions.

Time to Connect Building on the foundation of the Education Handbook, www.teacher.org.za is a new online platform with up-to-date information

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106 106

RATIONALISATION OF THE TEACHING FORCE

108

NORMS AND STANDARDS FOR EDUCATORS (NSE)

108

PROFILE OF THE TEACHING FORCE AND WORKING CONDITIONS

110

PROBLEMS PERCEIVED BY TEACHERS

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THE TEACHING CAREER

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about the key repor ts, issues and initiatives

TEACHER EDUCATION

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covered in this publication.

TEACHER RECRUITMENT

120

SELECTION AND APPOINTMENT

121

PERFORMANCE MANAGEMENT

121

Weâ&#x20AC;&#x2122;d like to hear your comments and suggestions on how we can improve and expand both the website and the next

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RECOMMENDATIONS

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edition of the Education Handbook. Log onto www.teacher.org.za today and post your comments to make a real difference.

We need you to help us shape this exciting NEW project and the way it will support all of us in reaching the collective goal of quality education in South Africa. Log onto www.teacher.org.za today and post your comments to make a real difference.

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The Teacher as educator

GENERAL EDUCATION AND TRAINING OVERVIEW

This chapter provides a review of an education sector in transition with immense challenges relating to the Apar theid legacy, the impact of HIV/AIDS, the negative consequences of the redeployment exercise, the problems experienced in rationalising educational institutions for teachers and idealistic, progressivist education policy represented by the curriculum review. T he T eacher as educator In reviewing the research on education, it is evident that different terminology is used in describing the profession of teaching. In some instances, the term “educator” is used, and in other instances, “teacher” is preferred. Both the teacher and educator terms are used interchangeably throughout the handbook, as different viewpoints are exposed and these views include different aspects of the teaching profession. The term ‘educator’ refers to the role of the teacher as an educator, and whilst it is understood that the term ‘educator’ aligns with the terminology of outcomes based education, this section focuses on the profession of teaching, and the common term of teacher is used, to build on common understanding. It is recognised that outcomes based education has positioned teachers as educators, which is a move away from the traditional style of teaching. The emphasis is now on facilitating learning within the classroom to achieve the desired outcomes.

T he role of the teacher in societal transformation The implementation of major educational reform is, to a large extent, reliant on the teaching force as teachers are in the frontline of the implementation process. The image of the teaching profession, the quality and number of entrants to the profession, the quality of their training, motivation, working conditions and career prospects are important factors in ensuring transformation and the realisation of policy reform. Whilst attention has been given to the development of policy to transform the education system, less attention has been paid to the dynamics and time scale involved in the achievement of this change and to the on-the-ground circumstances where reform has to take root. According to the OECD review, international insights on policy reform have been ignored and reliance has been placed on the impact that policy and regulation could

make on the implementation of educational change. Policy makers have an urgency to use the educational system to build a new society, whilst underestimating the impact of this policy on the educational system. “There is no quick fix for education reform. It is a complex and gradual process in any country and was exacerbated by the nature of the education system inherited by the new administration.”1 The achievement of “deep change” in education takes time and many supportive elements. The top-down approach in a compressed time-scale, with inadequate preparation and resourcing pose significant challenges for teachers. This has been compounded by a sequence of measures to evaluate teacher performance, linked to salary provision, which has resulted in behavioural issues that are not favourable to professional engagement and performance.

“Teachers are the largest single occupational group and profession in the countr y, numbering close to 390 000 in public and private schools. Their role has strategic impor tance for the intellectual, moral, and cultural preparation for our young people. They work in extremely complex conditions, largely due to the per vasive legacies of Apar theid, but also as a result of the new policies needed to bring about change in education”. 2

1 OECD (2007), Review of National Policies for Education South Africa, p 297, OECD, Paris. 2 Depar tment of Education, 2006i, p 6.

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Rationalisation of the teaching force Norms and Standards for Educators (NSE)

R ationalisation of the teaching force The rationalisation of the teaching force in the mid-nineties had a significant impact on the teaching profession, at a time when fundamental change was being introduced to the system. The policy formulation, par ticularly the introduction of outcomes based education, did not take account of the realities of the system. Most teachers entered teaching when education was organised in racially and ethnically divided sub-systems and education was based on a rote learning, corporal punishment format. Under Apar theid, each Bantustan education depar tment had its own teachers’ training college and teachers were produced without regard to demand requirements for the country as a whole. After 1994, these imbalances of teacher supply and demand between and within provinces were unsuccessfully addressed by an acrimonious, process of rationalisation, retrenchment

and redeployment. The purpose of this process was to address the imbalances in learner-teacher ratios and to create a more equitable education system. However, the poorer schools did not benefit from this process, as most teachers were reluctant to teach in these areas, resulting in vital teaching skills being lost as experienced teachers left the profession. Fee charging schools were able to attract more teachers to contain the learner to teacher ratios. Schools with more diverse curricula or with established maths, science and technology programmes were favoured, which were generally the former white schools, resulting in entrenching the inequality, which the rationalisation process was designed to correct. In

1997, the

national

guidelines

for

redeployment were abolished and provincial depar tments of education could decide on the number of teachers to be employed. This resulted in a lengthy struggle with the unions, which resulted in an agreement on redeployment being signed in 1999. School governing bodies (SGB’s) could now appoint teachers, which led to fur ther inequalities between well financed schools and disadvantaged schools. For a period, teacher recruitment was halted until all the teachers deemed to be in excess were redeployed, which created a sense of uncer tainty around teaching as a stable career. This was compounded by the closure of 120 training colleges and the relocation of teacher education within the higher education sector. This decision was aimed at improving quality and standards, but there were unintended consequences which undermined the teaching career.

N orms and S tandards for Educators (NSE) A national audit on teaching was conducted in 1995, which led to the publication of Norms and Standards for Educators (NSE), which set out the requirements in respect of the knowledge, values and skills that a teacher must acquire to achieve a competence based approach to education. 4 The expected competencies were too elaborate and considered unrealistic for new

teachers and the competency framework involved new concepts and terminology, which made it difficult to implement. Existing teachers had been trained differently in the old Apar theid system, with the associated deficiencies in quality. For many black teachers, whose education did not require them to study mathemat-

ics or science, the new curriculum was too complex. The assumptions being made about the capacity of teachers to implement the new curriculum were not based in reality. Fur ther, it was assumed that the new policy could be introduced universally, without taking into consideration the differences between school conditions.

“For many schools, it was ‘mission impossible’ in relation to the training and capacities of their staffs, to the conditions of wor k that prevailed and to the lack of equipment and teaching resources.” 5

4 OECD (2007), Review of National Policies for Education South Africa, p 296, OECD, Paris. 5 OECD (2007), Review of National Policies for Education South Africa, p 296, OECD, Paris.

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Profile of the teaching force and working conditions

P rofile of the teaching force and working conditions In 2007 there were 394 225 teachers employed, with only 5,6% in independent schools.6 Two thirds of these teachers are women, but men still dominate the promotion posts and school management. The national average for learner to teacher ratios is 31.5:1 7, down from 35:1 in 2004.8 Two-thirds of the teachers are aged between 35-50. This confirms that most of these teachers were trained during the Apar theid era. There has been a substantial reduction in the number of unqualified and under-qualified teachers in the system. In 1994 there were 122 459 (36%) unqualified/underqualified teachers, compared to 76 839 (22%) in 2000. This percentage has continued to decrease to 8.3% in 2004. The

propor tion of unqualified/under-qualified teachers is higher in primary schools (11% compared to 2.8% in secondary schools) and in rural communities (9% compared to urban schools: 7.5%).9 The DoE has instituted a system of continuous upgrading for teachers, which is overseen by the South African Council of Educators (SACE).

the main reason for South Africa’s relatively low performance.10 According to a HSRC study, many teachers come to school late and leave early.11 Too much time is also spent on administrative tasks, with teachers only spending 46% of their time teaching (compared to 64-79% expected by education policy).

There is an increased emphasis on the need to monitor and assess performance with the Integrated Quality Management System (IQMS) being introduced. There is union resistance to the concepts of performance assessment and inspectorates.

This identifies a major challenge in education to ensure that the relatively well-paid teachers are fully and efficiently utilised in the education system.12 Specifically, teachers need to be equipped to deal with large classes and empowered to focus on educational activities, as opposed to an administrative overload.13

International studies have indicated that the return on investment in teacher education is comparatively low and this is identified as

The number of teachers employed in South Africa in 2007.

Too much of teachers’ time is spent on administrative tasks, with teachers only spending 46% of their time teaching (compared to 64-79% expected by education policy).

35-50 Two-thirds of the teachers are aged between 35-50, which confirms that most of these teachers were trained during the Apar theid era.

The reasons cited for teachers leaving the profession: • workload stress, • low salaries, • lack of career advancement.

46%

The national average learner to teacher ratios has decreased from is 35:1, to 31.5 :1 in 2007.

The impact of HIV/AIDS is taking its toll on the education force with 12.7% HIV incidence among teachers, with the younger age group (teaching for 0 - 14 years) accounting for 55.5% of those affected. The attrition rate is about 5-6% per year with younger teachers leaving the system. 55% of teachers would leave teaching if they could.15

• lack of school discipline and

394 225 31.5:1

A sample study of over 17 000 teachers revealed that they earned, on average, a higher income than most other employed persons, largely due to them being highly educated, with 50% of teachers having first degrees and over 70% having 10 or more years teaching experience. Teachers are highly unionised with 88% being members of the main unions.14

70% 50% of teachers in South Africa have first degrees and over 70% have more than 10 years teaching experience.

88% Teachers are highly unionised with 88% being members of the main unions.

76 839

12.7%

In 1994 there were 122 459 (36%) unqualified/under-qualified teachers, compared to 76 839 (22%) in 2000

The impact of HIV/AIDS is taking its toll on the education force with 12.7% HIV incidence among teachers.

The working conditions vary enormously and many teachers are expected to cope with the effects of major socio-economic disadvantage and domestic dysfunction, relating to over 50% of people living below the pover ty line.16 While attendance rates at schools are high, many parents are unable to provide the understanding and active suppor t to their children to enable progression. There are over 4.7 million illiterate people in South Africa, which impacts on educational development of the youth.

6 Depar tment of Education, 2009, p 5. | 7 Depar tment of Education, 2009, p 6. | 8 National Treasury, 2007, p 11. | 9 Depar tment of Education, 2005f, p 26, 47. 10 Department of Education, 2003c, p 10. | 11 Human Science Research Council, 2005, pxi. | 12 OECD (2007), Review of National Policies for Education South Africa, p 86, OECD, Paris. 13 Department of Education, 2006d, p 25.

14 Shisana,et al., 2005. | 15 HSRC, 2005. 16 Jansen and Taylor, 2003.

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THE STARS IN EDUCATION AWARDS Mr Makhabela indentified a lack of greenery at his school, he also noticed that many learners were coming to school hungry mainly due to parents being unemployed. He then started his Greenery Project to create a beautiful and functional school that could provide learners with food and vegetables whilst getting parents involved by working in the gardens. Yet all of this did not happen overnight. It took two years to get a volunteer farmer to come and plough the land. Due to the virgin soil more assistance was needed from neighbouring farmers to transport fertilizers to the virgin soil. Due to parents not showing interest in the initial stage, learners would help in the garden after school or early in the morning. Yet with much perseverance the garden grew to feed the learners and there was enough produce to sell to educators thus generating funds to sustain the project whilst employing parents from the community.

THE STARS IN EDUCATION AWARDS WAS LAUNCHED IN 2007 TO IDENTIFY THOSE TEACHERS WHO ARE ACTIVELY SHAPING OUR COMMUNITIES INDIVIDUALS WHO HAVE GONE BEYOND THE CALL OF DUTY AND WHO ACT AS LEADERS IN EDUCATION.

AFTER WINNING THE STARS IN EDUCATION AWARDS. Mr Makhabela made use of the R10 000-00 by expanding the garden and erecting a fence around the area. They also purchased more gardening equipment and protective uniform for the staff members. Because of this more community members were employed and the project grew from feeding 60 to 178 learners.

The Awards recognizes remarkable educators in the following main categories: • Teachers who nominate a project of their own. • “My teacher the star” an opportunity for enthusiastic learners to identify and acknowledged their favourite teacher. Finalists are shortlisted by and independent committee and each receive a contribution for their specific project. The top three winners each receive a substantial investment towards their specific project that is also featured in the following year’s National Teachers Guide that is distributed to more that 150 000 teachers across the country.

When Mrs Mabejane started teaching in Klerksdorp she was so taken in by the extreme poverty of the kids in her class alone, where 75% of her learners were coming to school bear foot with nothing warm to wear in winter, no lunch and not even having had breakfast. This depressed her greatly; to see how the care free spirits that the kids should have had was being dampened by extreme poverty. She then decided to give the learners in her class an early Christmas party. The reason behind this was that most of the learners did not have exposure to TV or radio to get them into the Christmas spirit. She started by asking her sister for a donation which she used to buy cakes, sweets biscuits, balloons and made her own Christmas tree. The party was a great success, but the joy reached only her learners for that year.

Mr Mofokeng attended the Alternatives to Violence Project’s experiential workshop. From that he knew that he had found his calling. In order to reduce the violence in his school, he completed an advanced workshop where he was trained to facilitate workshops himself. Once he had done the training to the learners at Motswela Secondary School, he went on to train up facilitators at Matseripe Secondary School in Ventersberg. Together they started with 38 participants and by the beginning of 2008 they had 200 learners and teachers who had completed the workshop.

The next year she decided to ask businesses in the surrounding area for donations,which led to an early Christmas party for more grades and later the entire school. Learners did not get just a party, they received clothing as well as food hampers to take home and this has given all the learners at her school something to look forward to every year. AFTER WINNING THE STARS IN EDUCATION AWARDS. The R10 000-00 in prize money has gone toward awarding learners in the following categories: Academic Achievment, Leadership, Good Behaviour, Neatness.

To reinforce and support the learners and teachers they host a monthly “Wisdom Circle” in Kroonstad and Ventersberg. This a two-hour gathering to relearn some of the things learned at the workshop and to renew their commitment to being peace makers.

The school also used the money to aid the most destitute students for the rest of the year. This resulted in more companies coming on board to “adopt” poverty stricken, child headed households in the school community.

AFTER WINNING THE STARS IN EDUCATION AWARDS! When it was announced that R10 000 had been awarded to the school as a result of all these efforts, it was obvious that the most effective way to utilize this prize money would be to run further workshops. Two basic workshops were organized for the Grade Ten learners. The workshops were held at a youth camp centre, Juventas, just outside the Kroonstad city limits. Twenty-six learners and four educators participated, and if one is to judge by the enthusiasm exhibited, it was a huge success. The plan is to provide further workshops, known as advanced workshops, for these learners.

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For more information about sponsorship opportunities and naming rights of the Stars in Education Awards, please contact Shihaam Domingo from Argo. 021 865 2813 | shihaam@argo.org.za

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Problems perceived by teachers

EDUCATIONAL INITIATIVES TO IMPROVE EDUCATION QUALITY

P roblems perceived by teachers In 2005, 54% of teachers (with two-thirds teaching in technology, natural sciences, economics and management fields) considered leaving the profession.

The most important problems experienced by teachers, include: • Poor conditions of ser vice, including perceived low salaries and poor benefits, inadequate incentives, arbitrar y redeployments, unprofessional treatment, lack of development oppor tunities and insufficient suppor t. • Policy overload and consequent work overload. Curriculum 2005, together with the system of continuous assessment and the Integrated Quality Management System, creates additional work overload with threequarters of teachers feeling that their workload has increased substantially since 2000.17 • Disintegration of discipline. There is also a growing destructive subculture impacting on school life with incidences of vandalism, intimidation, rape and learner violence, which is often fuelled by drugs. • Lack of facilities. • Large class sizes. • Poor parental par ticipation. • Role conflicts. • Favouritism and nepotism.18

Teachers’ salaries have shown relatively slow growth over the past decade with real inflation adjusted increases of 0.5%. There was also a moratorium for a number of years on notch progression within the incremental scales. The General Household Survey (2005) indicated that teachers’ salaries are about 9% lower than the average pay across professions.19 However, compared to other developing countries, the purchasing power of South African teachers is greater than their counterpar ts in these countries, but this does not take into account the challenges faced in education in South Africa, with the higher learner to teacher ratios and teaching conditions. The pay differentials and lack of salar y progression make this profession unattractive to bright, ambitious school leavers. 20 The salary structures for teachers were substantially altered in 2007, after a period of almost static progression, which did not recognise the experience of long-term teachers. The new structure provides for more generous entry-level salaries to attract high calibre candidates and to reward skilled teachers to improve retention. The redesigned salary framework is suppor ted by the Draft Collective Agreement (2007) referred to as the OccupationSpecific Dispensation (OSD) for teachers, whose aim is to build in merit based, salary progression, emphasising the centrality of classroom based teaching.21 This agreement details the processes of how performance

will be evaluated, which recognises the role of the National Education Evaluation and Development Unit (NEEDU), but final agreement on the planned OSD scheme remains to be achieved.

Teachers’ salaries have shown relatively slow growth over the past decade with real inflation adjusted increases of 0.5%. The General Household Sur vey (2005) indicated that teachers’ salaries are about 9% lower than the average pay across professions.

17 HSRC, 2005, p ix. | 18 Depar tment of Education, 2005f, p 11-12. | 19 Depar tment of Education, 2007. 20 OECD (2007), Review of National Policies for Education South Africa, p 302, OECD, Paris. 21 OECD (2007), Review of National Policies for Education South Africa, p 314, OECD, Paris.

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A striking feature of the salar y structure for teachers is that initial pay is relatively good, but salaries become relatively worse with experience, when compared to other professions. This is cited as a major cause of dissatisfaction with teachers, which resulted in strike action in 2003 and 2007.

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The teaching career

T he teaching career The OECD review confirms that the teaching career in South Africa is facing many challenges and future policy needs to examine the issues in a comprehensive way.

Two institutions have been established as support structures for teachers: • The Education Labour Relations Commission (ELRC), which is a statutory body and includes union membership, and is aimed at collective bargaining and conciliation and arbitration issues. The ELRC commissions research on issues affecting teachers’ lives, with recent repor ts focusing on health and workloads. The OECD review confirmed that the role of the ELRC is relevant, but had reservations about its potential being fully realised. • The South African Council for Educators (SACE) was set up in 2000 with three main responsibilities: • the professional development of teachers, • the registration of teachers, and • the regulation of teachers through an agreed code of ethics. SACE is positioning itself as the co-ordinator and endorser of continuing professional development for teachers (CPTD).

T eacher Education In 2006, the DoE issued the National Policy Framework for Teacher Education and Development and stated it “has been a long time in preparation, and is certainly overdue given the state of our education system”.22 Teacher education has been undermined by the merger of the academic institutions and the implementation of the new curriculum. There is also a lack of consultation between the DoE and higher education institutions, who have expressed doubts about the new curriculum. This is exacerbated by tensions between these institutions and the provincial depar tments of education, regarding in-service training of teachers in relation to curriculum 2005. The faculties of education are also facing significant challenges, as these faculties are listed on the lowest level for the financial grading of facilities. This results in insufficient subsidy allocation, which does not recognise that quality teacher education is a labour intensive process. The lack of subsidies also constrains research output, which is vital for the development of the education system. The Deans’ Forum has been established to address the issues in teacher education and acts as a useful consultative agency.24 Initial teacher education requires a four year B. Ed. Degree, followed by a one year post graduate diploma (higher diploma in education), which is validated by the Council on Higher Education (CHE), the quality assurance regulator.

Unqualified and under-qualified teachers can improve their skills with the National Professional Diploma in Education (NPDE). A key challenge facing educational institutions is attracting high quality applicants. In 2007 the government introduced a bursary scheme to benefit 3 500 students on an annual basis. They will be required to teach for a number of years as par t of their bursary obligations. The OECD review confirms that this is an enlightened initiative. 25 Another concern is the fact that only 500 of the 6 000 graduates have knowledge of a local African language, which has a bearing on achieving the curricular aims of the Foundation Phase of schooling. Concerns have also been raised about the preparedness of student teachers for the courses they under take, as poor levels of literacy and numeracy have been identified. Fur ther, mathematics and science teaching have traditionally been weak in many schools and this is reflected in student teachers’ capabilities, as fewer students specialise in these subjects. These students also bring their negative school experiences with them into teaching, which perpetuates problems in the education system. The Ministerial Committee on Teacher Education (MCTE, 2003-2005) confirmed that initial education is weak in practical strategies and in knowledge content, with the theoretical rather than practical strategic actions overemphasised. Students spend time on practical classroom study, but there is concern regarding the quality of the on-site experience of trainee teachers.26

22 Department of Education, 2006, p 27. | 23 Department of Education, 2005, p 23. | 24 OECD (2007), Review of National Policies for Education South Africa, p 306, OECD, Paris. 25 OECD (2007), Review of National Policies for Education South Africa, p 307, OECD, Paris. | 26 OECD (2007), Review of National Policies for Education South Africa, p 308, OECD, Paris.

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The teaching career

Links between education faculties and schools are generally not well structured and the schools receive no incentive for mentoring these students, which increases the workload for the existing teachers. A great deal depends on the nature of the school to which the trainee is assigned, the quality of the school’s leadership, the interest of staff and whether the school is an example of best practice. According to the OECD review, this area of teacher formation is too impor tant to not receive the attention it requires.27 At present, the induction phase of teacher development is non-existent as a formal provision in the system. The MCTE report proposed adjusting the four year B.Ed into a three year Initial Professional Education of Teachers’ (IPET) programme, leading to teacher registration, followed by a one year school-based induction, which is recognised in the OECD review as insightful and practical.28 The DoE accepts that continuing professional teacher development (CPTD) is an essential dimension of teacher education to achieve national policy. However, the traditional CPTD has lacked professional credibility in the past, as it was fragmented and uncoordinated with limited impact.29 This view is suppor ted by the conclusion in the MCTE, which confirms that “CPTD needs to be given much higher prominence in our conception of teacher education”.30 The MCTE repor t confirms that the DoE’s policy aligns with the MCTE recommendations to develop CPTD and accepts that SACE should manage a new system and endorse programmes submitted by providers. It is proposed that in-career teachers are required to earn a specified number of professional development points per three year cycle, with approved courses paid by the DoE.

27 29 31 33

This proposal is still under discussion with the ELRC and the trade unions have not yet given their agreement. They have raised concerns regarding the resourcing of SACE and perceptions regarding the punitive dimension associated with the scheme.31 The OECD review confirms that a comprehensive, multifaceted policy should be devised for the teaching career, to address the current problems and lay the foundation for the future. This policy needs to be tempered with an acceptance that time is required to achieve culture change and embed new practices and procedures in performance. There are already initiatives aimed at bringing about change, but these tend to be compar tmentalised, which undermines the effectiveness of these initiatives. By integrating these initiatives, the overall impact of the policy will provide an infusion of hope and confidence in the profession, which will also improve the public image of teaching as a career. The MCTE report recognised that policy alone will not realise educational transformation goals. There needs to be acceptance that a culture change in teaching practice requires a long term perspective, supported by a sustainable enabling environment. The MCTE repor t confirmed 40 recommendations for change, including the restructuring of the four year degree, the introduction of a student loan scheme, the introduction of a radically new form of CPTD, which would be co-ordinated and endorsed by a better-resourced SACE. The repor t called for better resourcing and suppor t of education faculties. Fur ther it called for a National Teaching Career and Recruitment Centre and a

database of teacher supply and demand to ensure improved efficiency at matching teachers to positions. 32 The repor t also called for district development to be prioritised “as the key management nodes in the delivery of quality Education For All (EFA)”.33 Fur ther, the repor t stressed the impor tance of consultation and urged the establishment of a national education consultative forum and provincial education liaison committees. This repor t expressed concern over teacher shor tages and the poor image of teaching and commits to “an appropriately pitched recruitment campaign promoting the visibility, attraction and challenge of teaching as a career.”34

The expectations of initial teacher education are unrealistic and it is now recognised internationally, that teacher education needs to be phased in, with the initial education being followed by induction and continuing professional development.

OECD (2007), Review of National Policies for Education South Africa, p 309, OECD, Paris. | 28 OECD (2007), Review of National Policies for Education South Africa, p 309, OECD, Paris. Depar tment of Education, 2005, p 17. | 30 OECD (2007), Review of National Policies for Education South Africa, p 7, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 313, OECD, Paris. | 32 OECD (2007), Review of National Policies for Education South Africa, p 310-311, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 311, OECD, Paris. | 34 OECD (2007), Review of National Policies for Education South Africa, p 12, 312, OECD, Paris.

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Teacher recruitment

T eacher recruitment Teaching as a career has a low public status with the image of teaching being negatively por trayed in the media. This is sometimes compounded by the unprofessional behaviour of some teachers. Many teachers have internalised the negative image of their work, experiencing a lack of confidence and low morale. These factors undermine recruitment of teachers into the system. In 1994 there were 150 public institutions providing teaching education to 200 000 students. By 2000 there were 82 institutions with only 100 000 students, as colleges of education have been incorporated into the higher education system as a critical initiative aimed at improving the efficiency of the system. The impact of this initiative was that the number of teaching graduates declined from 70 000 in 1994 to 6 000 per annum in 2006. This is well below the replacement needs of approximately 20 000 per annum and teacher shor tages are expected to reach 38 000 by 2008.35 These figures also do not take account of the impact of HIV/ Aids on the workforce, which has an HIV infection rate of 12.7%. This is compounded by the fact that not all graduates will take up teaching jobs or stay in South Africa to teach. A sample study

conducted in 2005 confirmed that fewer than two-thirds of graduates intend to teach in South Africa, if they teach at all.36 Government is addressing these challenges with Fundza Lushaka, a national bursar y scheme for teachers, which was introduced in 2007. 37 The OECD review confirms that these initiatives are “going in the right direction”, but more cohesion and cross-referencing is required. 38 They also identify other constructive initiatives that have been planned in isolation from related developments, namely: • The Standards for principalship initiative, which is a pilot, school leadership programme devised by the National Management School Leadership Committee. At present, there are five universities involved in the two year, par t time programme, which is accredited by the Council for Higher Education (CHE) and 446 students were awarded bursaries to complete the course in 2007. Eleven other higher education institutions have applied for accreditation to deliver the programme. The aim is to develop 1 000 par ticipants. The roll-out of the scheme is due in 2009.

• Reform of districts, to provide a support mechanism for schools. The district is seen as the key agency to liaise with and support schools at local level. The projected time frame for implementation is 2010.The plan is focused on addressing the issue of sufficient staff at district level with the capacity to deliver on expectations. The resourcing requirements, excluding infrastructure, are formidable and are expected to be in the region of R63 billion.39 Whilst the OECD review commended the policy commitments outlined in the National Framework on Education and the initiatives detailed above, concerns were raised about resourcing requirements for concurrent implementation. Recommendations include ensuring that costings are built into the planning stage and that implementation strategies are integral to the policymaking process. The OECD review considers that there is “too much compar tmentalisation in relation to the steering of the various initiatives” 40 and calls for better communication, consultation and collaboration, to ensure that these initiatives interact with one another.

DoE’s Teacher Recruitment Campaign For the first time in years, universities are showing a marked increase in student numbers for teaching. This increase is a result of the DoE’s aggressive teacher recruitment campaign and the Funza Lushaka Bursar y Scheme. Irma Eloff, dean of education at the University of Pretoria, confirms that the bursar y is a huge drawcard, with 1 100 first year students applying, of which 300 qualified for the bursar y. Student increases include University of Pretoria from 789 to 1 224, the University of KwaZulu-Natal from 548 to 701, Wits University from 400 to 520 (with 532 applicants turned away because of space constraints), the University of Johannesburg from 213 to 330, Stellenbosch University from 571 to 637, and the University of the Free State taking an extra 28 from 410 in the previous year. Applicants were showing more interest in teaching in the foundation phase at primar y school level, as well as in economics and management sciences at high school level. Mar y Metcalf, at Wits University confirmed that the global recession made students realise that teaching is a secure profession.

Fur thermore, the OECD review recommends that an overall policy position paper be prepared by the DoE, in consultation with provincial depar tments. This paper would highlight the contemporary context of the teaching career and teacher education and act as a coherent plan to motivate the teaching force and create synergies between the initiatives. This would inform the marketing of teaching as a career to improve teacher recruitment. This would also enable the Minister of Education to present a well argued, multifaceted plan geared at improving social transformation, to ensure that education is prioritised in national policy, which would ensure a greater share of the national budget.

S election and appointment A key problem in selection is the lack of a satisfactory database on all aspects of the teaching force, including demand and supply, retention patterns, mobility, subject shor tages. Plans are in place to develop a comprehensive electronic database which will be able to inform future policy and planning.41 This is confirmed in the MCTE repor t, which confirms that a key policy statement of the DoE focuses on establishing an electronic database. This information service will reflect demand and supply and will be developed in collaboration with other key stakeholders.42 There are concerns about appointment procedures, which are done by the SGB’s who do not always have the exper tise for selection. Fur ther, there are concerns regarding cronyism with local interests and relationships influencing the selection process. SGB proposed appointments are subject to confirmation by the provincial depar tments of education, which should act as a restraint on any unfair selection procedures.

P erformance management Quality assurance issues exist as the current quality system under the IQMS relies on self-appraisal by schools, with the incentive scheme linked to the evaluation of teachers’ performance. There is a tendency for schools to classify the majority of teachers as “good”. It is difficult to dismiss chronically inefficient teachers. This is indicated by the fact that only 60 teachers have been deregistered by SACE in 2000. This has led to the planning of a new performance incentive scheme with more external moderation. The MCTE repor t confirms the DoE’s intention to establish a National Education Evaluation and Development Unit (NEEDU) to “provide the necessary moderation processes in regard to both the Whole School Evaluation policy and the agreement on an Integrated Quality Management System (IQMS) for the appraisal of teachers”.43 No detail is provided on the unit, but it has been suggested that it could involve a new form of national inspectorate with an ‘assist and assess’ role for schools.44 Another incentive scheme is linked to the National teachers’ awards, which recognises performance. The OECD review suggests extending this initiative to “highlight the public’s esteem for distinguished work by teachers”.45 The underachievement of learners and the disappointment of the policy makers and the general public cannot all be blamed on teachers. It is a much more complex issue and learner achievement is dependent on many factors beyond teacher competence.

Source: Govender, P. 2009. Wannabe teachers fill universities, The Times, 28 Februar y. 35 HSRC, 2005. | 36 University of KwaZulu-Natal, 2005 p 84. | 37 OECD (2007), Review of National Policies for Education South Africa, p 84, OECD, Paris. 38 OECD (2007), Review of National Policies for Education South Africa, p 316, OECD, Paris. | 39 OECD (2007), Review of National Policies for Education South Africa, p 317, OECD, Paris. 40 OECD (2007), Review of National Policies for Education South Africa, p 317, OECD, Paris.

41 42 43 44 45

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OECD OECD OECD OECD OECD

(2007), Review (2007), Review (2007), Review (2007), Review (2007), Review

of of of of of

National National National National National

Policies Policies Policies Policies Policies

for for for for for

Education Education Education Education Education

South Africa, p 302, OECD, Paris. South Africa, p 313, OECD, Paris. South Africa, p 22, OECD, Paris. South Africa, p 313, OECD, Paris. South Africa, p 303, OECD, Paris.

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TEACHER DEVELOPMENT

Teacher Development Summit 29 June – 2 July, 2009

SUMMIT

T eacher D evelopment Summit 2 9 June – 2 July, 2 0 0 9

DoE support and resourcing •

DoE will identify budgetary resources for teacher development (including the Skills Development Levies) and how they are currently used.

•

Teacher development provision for state-employed teachers will be properly funded as a national competence in order to meet system needs and priorities.

•

DoE and provincial education depar tments will develop coherent, cooperative and streamlined structures and credible capacity for teacher development and suppor t within a national framework which integrates all aspects of teacher education and development, and develop credible capacity.

•

Relationships between provincial and district-based structures (district offices and teacher development centres or institutes) and their capacity to suppor t teacher development must be examined and strengthened.

•

DoE will, in collaboration with all the key stakeholders, research and prioritise system needs for the production of quality teacher development programmes which respond to urgent needs within defined timeframes and are managed on a sustainable basis.

D eclaration, 2 J uly 2009 The Teacher Development Summit (‘the Summit’) of 29 June to 2 July 2009 came about as a result of a call from teachers themselves through their organised formations. The Summit will form the basis for a new, strengthened, integrated national plan for teacher development. The following declaration represents the consensus achieved among participants at the Summit, which was supported by the Department of Education, the Education Labour Relations Council (ELRC), the South African Council for Educators (SACE) and the Education, Training and Development Practices Sector Education and Training Authority (ETDP SETA).

T he S ummit Participants resolve that: A new, strengthened, integrated national plan for teacher development be develop that: •

defines clear roles, responsibilities and innovative, collaborative relationships among the key stakeholders for the improvement of teacher development;

Provisioning •

DoE, in collaboration with teacher unions and stakeholders, including HEIs, will resource appropriate structures and modes of delivery of teacher development to ensure that suppor t is accessible to all our teachers, including programmes provided by a variety of role-players such as teacher unions and teacher development institutes.

•

To address the demand for new teachers with required curriculum competence, par ticularly for rural areas, and to provide quality teacher development oppor tunities for all teachers wherever they are, with due consideration of educational and economic costs and benefits, urgent attention and consideration must be given to:

•

the opening of colleges, in response to widespread calls for such a move, and the form that this might take, including aspects of pre-service and in-service training; and

•

relates key decisions to the broader context of teacher supply, utilisation and demand;

•

defines the appropriate institutional arrangements for the delivery of key components of teacher development such as teacher education and professional development;

•

contains clear priorities and realistic timeframes for implementation;

•

recognises the needs of ECD practitioners and Foundation Phase educators as a par ticularly impor tant aspect of the plan;

•

reduces the overload of policy prescriptions and regulations;

•

alternative models for strengthening the institutional capacity of the system as a whole.

•

provides for an equitable, adequate and efficient allocation of funds and other resources (including the source and destination of such funds and resources) to enable all teachers to perfect the ar t of teaching – the central concept underpinning the Summit; and

•

provides a platform for the development of robust human resource management and information systems that facilitate equitable and efficient provision of and suppor t for teacher development.

DoE will suppor t HEIs, teacher unions and NGOs to develop their capacity to design and create responsive curricula based on the needs of teachers and the system focusing par ticularly on the skills, practices and content knowledge required to improve the quality of learning and teaching in the classroom.

•

The DoE, together with teacher unions, will ensure that the utilisation of teachers’ time allocated to teacher development is beneficial to the teacher and results in improved quality in the classroom.

•

A streamlined system for the recognition of professional competence must be developed to assist permanent underqualified and unqualified teachers (as defined in the ELRC collective agreement) to benefit from appropriate salary grading.

A clear, coherent policy and regulatory environment will be designed for both teacher appraisal and teacher development, which teachers and other role-players can easily understand and with which they can readily engage.

•

To examine the modalities, including RPL, resource requirements and implications for teacher development to achieve the ideal that all teachers will reach the level of REQV 14 as soon as practically possible.

Teacher appraisal for purposes of development will be delinked from appraisal for purposes of remuneration and salary progression. IQMS will be streamlined and rebranded. Mechanisms for identifying and responding to teacher development needs will be improved, par ticularly in relation to developing curriculum competence that will enhance the quality of teaching and learning in our schools. This should be done in a way that secures the trust and confidence of teachers, so that they are able to discuss their own challenges in a non-punitive environment and are able to access relevant mentoring, suppor t and training that is targeted to their needs.

Management of the post-Summit process

T he plan will address the following issues : Appraisal and evaluation

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The mandate of the Teacher Development Summit Steering Committee will be extended to oversee the development of the plan for teacher development, and to repor t on progress to the Minister within three months of the Summit with the intention of commencing roll-out in 2010.

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Focus areas for improving teaching quality

RECOMMENDATIONS

F ocus areas for improving teaching quality

R ecommendations The OECD review provides the following recommendations for addressing the key issues in improving the quality of teaching: The DoE should produce a policy position statement, setting out a coherent and cohesive action plan, which highlights the key policy

The OECD review identified the following areas for further attention: • A co-ordinated approach to the issue of chronically ineffective teachers. • The introduction of teacher assistants to deal with higher learner :teacher ratios, par ticularly in the Foundation phases and where there are very large ratios in disadvantaged schools. • The underfunding of faculties of education, which is a crisis at the hear t of teacher education.46 The OECD review confirms the usefulness of the planned National Education Evaluation and Development Unit (NEEDU) to improve policy implementation at provincial level, by assisting and assessing schools with regard to whole school evaluation. This would address issues of chronically ineffective teachers, absenteeism and restore the focus on teaching and learning. The OECD review also confirms that SACE is a valuable agency for the teaching profession in South Africa. SACE’s projected role in relation to continuing teacher development, if sufficiently resourced, will enable it to interact with providing institutions and in-career teachers to enhance the professional development mandate. It’s workshops and handbook promoting the Code of Professional Ethics are of major importance in improving standards of behaviour and a sense of professionalism in teaching.

• The reliance on distance learning as a cost-effective alternative to training teachers, as initial, quality teacher education is labour intensive.

• Better processes of teacher induction are required for new teachers. The formative teacher experience has a long-term influence on retention.

• Some elements of the IPET courses need to be reformed and greater provision is required for preparing trainee teachers in inclusive education environments.

• A greater understanding needs to be developed between provincial depar tments of education and teacher education institutions to address the development of effective, motivated teachers.

• Greater suppor t is required to foster close par tnerships between higher education institutions and schools to improve the practical experience of teacher education.

The OECD review confirms that SACE is well positioned to improve the public image of teaching. It would be desirable to involve SACE in the DoE’s recruitment campaign. A standing brief to promote teaching as a profession should also be considered. A closer liaison between agencies such as the ELRC, the Deans’ Forum and SACE could also be beneficial. The OECD review recommends more public resourcing be allocated to research into the teaching career and teacher education, par ticularly in this time of major transition for the teaching career.47 The OECD review acknowledges that there is concern and disappointment in the performance of learners in various tests, but calls for patience in reviewing these results. There needs to be a focus on identifying the root causes of underachievement, by developing an integrated approach to ensure comprehensive, teacher education reform.

CHAPTER 8 THE TEACHER AND THE TEACHING CAREER

student teachers, the 2007 salary scheme and the OSD plan, the CPTD policy, the planned electronic database on teachers, the planned NEEDU, the training plan for school leaders and the planned reform of school districts. The aim should be to build confidence that the issues surrounding teacher education are being effectively addressed, to encourage motivation within the teaching force. This statement needs to be suppor ted with greater communication, consultation and collaboration between those leading the different initiatives.

•

Faculties of education in higher education need to be better resourced and suppor ted, to ensure improved teacher education over the full career and to engage in educational research to provide insights to guide the transition in education.

•

Initial teacher education needs to include more emphasis on practical teaching strategies to improve preparation for the inclusive education policy and to provide more structured suppor t for the classroom practice dimension of teacher education.

•

Plans are required to improve the quality of distance Education For All (EFA) forms of teacher education.

•

Pilot schemes are required for inducting teachers in their first position, which can then be rolled out in a context that is suitable to South African conditions.

•

SACE requires adequate resourcing to enable it to fulfil its mandate to develop the professionalism of teaching as a career.

•

The planned initiative of employing teacher aides in the foundation stage should be monitored carefully, with a view to extending this practice to disadvantaged schools with large classes.

•

A more structured approach is required for dealing with the issue of chronically ineffective teachers.

•

More training is required for SGB’s to enable them to fulfil their responsibilities in managing schools.

• More training of the SGB’s is required to enable them to fulfil their managerial duties more effectively at schools.

“This is a period of steady ner ves and for frank appraisal of all the contributor y factors, combined with a determination to take multifaceted, long-term action to address the underlying problems.” 48

46 OECD (2007), Review of National Policies for Education South Africa, p 318, OECD, Paris. | 47 OECD (2007), Review of National Policies for Education South Africa, p 320, OECD, Paris. 48 OECD (2007), Review of National Policies for Education South Africa, p 321, OECD, Paris.

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initiatives planned for teacher education. This statement should include references to the recruitment campaign, the bursary scheme for

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Who are we? Nasou Via Afrika offers a comprehensive spread of Schools Grades R 12 and FET Colleges Levels 2 4 learning and teaching support materials developed for the National Curriculum Statement, including a unique range of early childhood development apparatus for Foundation Phase. We strive to produce materials which are easy-to-use and always of the highest standard, that both teachers and learners will enjoy. Nasou Via Afrika is also proud to publish over 1 000 literature titles in all South Africa’s official languages. Our teacher-training team is available to assist schools countrywide by running workshops. Nasou Via Afrika is 30% owned by Thebe Investments, a black investment company. Our other shareholder, Media24, 15% of which is owned by participants in the Welkom Yizani share scheme, the biggest public broad-based BEE share offer in the print media industry. We are proud to be South African. We are a wholly-owned South African company. We have no overseas shareholders. All our authors are South African, our entire production process takes place in South Africa, and we print all our books in South Africa. All of our profits stay in South Africa and are predominantly used to develop new products for South African education. By buying our quality Proudly South African products, you help create jobs, stimulate economic growth and fight poverty. The combination of innovative new publications and a solid backlist has made Nasou Via Afrika a successful and respected company for close on 45 years. We are committed to meeting the challenges presented by the continuing transformation of education in South Africa, and strive to achieve this by providing first-rate publications and outstanding service to all South African educators.

CHAPTER 9

Time to Connect Building on the foundation of the Education Handbook, www.teacher.org.za is a new online platform with up-to-date information

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CURRICULUM REFORM

C URRICUL UM R E FORM

The class of 2008 were the first to write the new National Senior Cer tificate (NSC) examination and these results will provide a basis for evaluating the effectiveness of curriculum change over the past 10 years.

Curriculum reform in South Africa has been “of a scale arguably unparalleled in the histor y of curriculum change”. 1 This chapter addresses two critical policy levers: curriculum reform and textbook publication. The initial curriculum reform was to rationalise and consolidate the syllabi of the 19 racially segregated education departments and to remove overtly racist, sexist and offensive language to align with the new constitution. The rationale for the curricula change was the need for a single national curriculum framework, which was free from discrimination and aligned to international research.

Induction of the new system focused on a cascade model of training, which proved problematic as the complexity of the curriculum was watered down with each level of training. Whilst the advantaged schools had the resources to implement the new curriculum, the disadvantaged schools struggled, which widened the gaps between these schools.3

The emphasis is now placed on an outcomes based approach with an integrative curricular format with the teacher as facilitator of active learning methodologies.

The successful implementation of this policy was affected by the availability of appropriate learning materials, large class sizes, classroom conditions and teacher capability. Pupil assessment formed an integral par t of the process, which increased the administrative burden on teachers, reducing actual time for teaching.4

Curriculum 2005 (C2005)2 was launched in March 1997 and implemented in phases from 1998. The new curriculum drew on international curriculum developments, par ticularly from Australia and New Zealand. The introduction of the new curriculum has been criticised for its complexity, language, lack of alignment and inadequate implementation suppor t. In addition, the adoption of outcome-based education was seen as an example of international “policy borrowing” and questions were raised regarding the relevance of this approach to the South African context.

The system has been reviewed and a revised National Curriculum Statement was introduced in 2002, which now focuses on simplifying the language and gives more emphasis to basic skills, content knowledge and logical progression.5 It combines a learner-centred curriculum with an appreciation of the impor tance of content and teacher suppor t. It has also been introduced in a more gradual and informed manner which culminated in the phase-in of grade 12 in 2008.

“In 2008, for the first time, learners across South Africa will all be on the same national school curriculum. This marks the completion of the radical curriculum change first introduced in 1997 as Curriculum 2005 (C2005) and revised in 2002 (Revised National Curriculum Statement (RCNS)). Given the challenging post-apartheid conditions, as well as the short time for implementation, this is a staggering achievement of which South Africa’s education system can be justly proud”.6

1 Harley and Wedekind, 2004, p 195. | 2 C2005 - Depar tment of Education,1997. | 3 Christie, 1999. 4 OECD (2007), Review of National Policies for Education South Africa, p 131, OECD, Paris. 5 Depar tment of Education, 2002a. | 6 OECD (2007), Review of National Policies for Education South Africa, p 169, OECD, Paris.

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The OECD review identified that outcomes-based education (OBE) itself is not the issue, but that the design of the curriculum and aspects associated with the implementation: teacher training, learning suppor t materials, provincial suppor t and limited time frames were the key issues. It is argued that there is overwhelming suppor t for the principles of OBE (and Curriculum 2005), as the focus is on results and successful learning. However, implementation is affected by the lack of resourcing and insufficient regard for local realities.7 Any curriculum design needs to take account of the time available for learning and teaching. The time allocations set out in the RNCS are roughly in line with international practice, although the scope and complexity of the curriculum in the higher grades and the scale of formal assessments appears to constrain the oppor tunity to learn.8 Formal contact time is limited to a maximum of 27.5 hours per week, but observers have noted that, in reality, only about half of the available time is spent on actual teaching.9 Since 2004, an orientation programme has been conducted for 200 000 foundation and intermediate phase teachers, 75 000 grade 10-12 teachers and 2 100 provincial officials.10 However, there is ongoing concern that disparities of teacher preparedness and resources make this modern, resource intense curriculum inappropriate for the South African context.11

OECD (2007), Review of National Policies for Education South Africa, p 170, OECD, Paris. 8 OECD (2007), Review of National Policies for Education South Africa, p 173, OECD, Paris. 9 Chirsholm, L., et al., 2005b. 10 Depar tment of Education, 2007e. 11 OECD (2007), Review of National Policies for Education South Africa, p 81, OECD, Paris.

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TEXTBOOK PUBLICATION, BUDGET ALLOCATION AND DISTRIBUTION

T E XTBOOK P UBLIC ATION, B U DGET A L LOC ATION AND D I STRIBUTION The implementation of the National Curriculum Statement (NCS) required the publication of textbooks to be aligned to the NCS. Currently, all publishers publish textbooks and teacher suppor t material for the different phases of education, including FET in all 11 official languages. In 2006, the DoE, with the suppor t of provinces, established teams to develop criteria for the screening of textbooks. This was followed by the recruitment of provincial subject advisors and exper ts to assist with the process. Textbooks for grade 10 – 12 have been screened and approved and a catalogue of textbooks has been published. There have been problems of textbook accessibility in schools, par ticularly at the lower levels, as the schools have focused on supplying textbooks to the secondary grades (par ticularly grade 12). The migration of learners also contributes to a shor tage of textbooks in schools.

C urriculum implementation Books are a key tool for introducing and reinforcing the national core curricula. They also suppor t quality assurance as they unify national standards and assessment. As such, they are critical for the realisation of reform policy, par ticularly in South Africa, where the creation of a unified education system is a constitutional imperative and a key political goal. For this reason, the National Treasury has prioritised spending on critical areas like learner suppor t materials within non-personnel spending.12

“Books and materials are the main vehicle for getting the requirements of the revised National Curriculum Statement into the hands of teachers and learners...... textbooks are the main – sometimes the only – educational resource in classrooms” The OECD review. 13

For grade 10-12 teachers, the DoE has developed content frameworks for each subject. These frameworks are suppor ted by 40 work schedules which confirm the content to be covered in each week and also include subject assessment guidelines. The OECD review welcomes the Foundation for Learning campaign, as it includes the distribution of reading toolkits to primary schools to assist teachers in the teaching and assessment of reading. The OECD review expresses the hope that a similar effor t will follow to suppor t numeracy.14

The OECD review identified the following principles for learning materials: • The objective is to get a choice of good quality materials into the hands of all learners at a reasonable price. • No child should be without the books needed for school work. • Learners in poor families should receive free textbooks from grades 1-12, regardless of whether the school is a no fee school. • Textbook evaluation and approval panels should not be linked to curriculum groups, publishers, authors or printers. • The choice should lie with the school and teachers should have the responsibility to evaluate and select materials that best suit the needs of the learners. • Lists of approved materials must cover a wide range of needs, from basics to enrichment, to accommodate all learners.

12 National Treasury,2007b | 13 OECD (2007), Review of National Policies for Education South Africa, page 178, OECD, Paris. 14 OECD (2007), Review of National Policies for Education South Africa, page 177, OECD, Paris.

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LANGUAGE, FINANCING AND TEXTBOOK PROVISION

Language The medium of instruction is a critical issue, as the OECD review confirms that the acquisition of initial literacy and numeracy in the learners’ home language, for at least four years, leads to improved literacy levels. Most parents choose to have their children taught in English, which is seen as the language of economic and social mobility, whether or not it is the right suppor tive environment for learning. In addition, the switch from home language to the language at school is not well managed. Oxford University Press publishes all core grade 1-3 textbooks and workbooks in all 11 languages, but there is so little demand for African language books post-grade 3 that publishers hardly publish them.15 The Publishers Association of South Africa (PASA) confirms that 75% of local-origin books are in English.16

F inancing Funds for school textbooks are allocated to provinces and all schools must adhere to the preferential procurement policy of the province. For Section 21 schools, funds are transferred to the bank accounts of these schools and they buy their own textbooks and stationery. For non-section 21 schools, the Depar tment confirms the provisional budget with the schools, who then need to plan accordingly and only after receiving the final budget, do they place their orders with the Depar tment, who then buys and distributes textbooks to the schools.17 The OECD review has concerns regarding the 14% value added tax on education books in South Africa and supports ring-fencing VAT charged on school and library books. This principle was previously investigated by National Treasury and the DoE and book 15 17 19 21 24 25

publishers supported this initiative. At that stage, it was found to present too many practical difficulties of implementation. It is recommended by the OECD that the abolition of VAT be revisited.

T extbook provision The National Department of Education has specified guidelines for textbook provision for grades 10-12. There are no similar guidelines for the lower grades. The current practice is one book per learner per subject per level. The publishers submit their range to the provincial departments for approval, except in the Western Cape, where there is no approval system. During the implementation phase of the new curriculum, there were significant differences among provinces in submission dates, time-frames, evaluation and other aspects of the provision process. The publishers have complaints regarding the communication between the curriculum and procurement sections of the provincial departments, which has resulted in numerous errors in the procurement catalogues.18 There is evidence of book shortages at schools, and one reason for this is the introduction of the new curriculum twice in 10 years, which has required a large investment in new books. The spending of the provincial depar tments of education on goods and services is set to rise by 14.2% annually to reach R13 billion by 2009/2010. According to the OECD review, it is essential that the provincial management of efficient supply chain processes be improved to ensure that provision at school level is improved.19 There are some concerns that the school market is over-concentrated between a few giant publishers, which restricts the range and increases the prices of textbooks. However, the OECD review found that the South African publishing industry is vigorous and competitive, with total net turnover of

RECOMMENDATIONS

R3,23 billion shared between 94 publishers in 2006. The education sector represented nearly R1.5 billion in books plus R9.6 million in supplementary materials. The majority of books for schools were of local origin (93%).20 The OECD review confirms that South Africa’s strong educational publishing industry is able to provide reasonably priced, good quality books to schools. Only about 35% of schools in South Africa repor t that they have any kind of storage facility or library,21 which fur ther compounds the situation. If the aims of the NCS are to be achieved, library resources (and internet access) are essential.22 Currently, only 9 000 of 25 000 schools have a library of any sor t.23 The Quality Improvement Development, Suppor t and Upliftment Programme (QUIDS UP) aims to provide suppor t in the form of libraries, laboratories, teaching materials and training to 5 000 schools that perform poorly and are located in the worst performing districts, with the emphasis on maths, science and technology.24 School Retrieval Rates also need to be addressed with retrieval rates as low as 50%,25 which impacts on the annual cost to the education system. These low retrieval rates are related to a lack of accurate controls, difficult home conditions of learners and learner mobility between schools. The key is for each school to take stronger responsibility for the management of its assets and this should become an integral par t of good school management, linking it to the granting of Section 21 status. A proposed strategy to reduce the cost of textbooks is to introduce a textbook rental scheme, but this will have implications for no fee schools and will also increase the administrative burden on schools that will need to administer the system. The OECD review confirms that this rental scheme would not be suitable for South Africa.

McCallum, 2004. | 16 OECD (2007), Review of National Policies for Education South Africa, p 180, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 82, OECD, Paris. | 18 OECD (2007), Review of National Policies for Education South Africa, p 182, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 184, OECD, Paris. | 20 OECD (2007), Review of National Policies for Education South Africa, p 179, OECD, Paris. National Treasury, 2007a. | 22 OECD (2007), Review of National Policies for Education South Africa, p 186, OECD, Paris. | 23 National Treasury, 2007a. OECD (2007), Review of National Policies for Education South Africa, p 186, OECD, Paris. Cape Town Region (2007), “Functional Regional Overview on Cape Town Region Competitiveness and Priority Sectors”, Background Paper, Cape Town, October.

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R ecommendations Outcomes-based education focuses on the achievement, by learners, of specified outcomes, which requires regular assessment and measurement. The OECD review was impressed with the National Curriculum Assessment Guidelines, as well as the National Policy on Assessment and Qualification for Schools in the General Education and Training (GET) Band.26 The OECD review recommends that the National Curriculum Statement (NSC) remains for the next substantial period and that attention be focused on three areas: • the development and distribution of teaching and learning materials, • the professional development of teachers, and • the development of assessment tools. Other recommendations from the OECD include:

• Ring-fence VAT returns on school and library books, to improve textbook provision and reading material for all learners. • Tighten controls on textbooks and improve retrieval rates to 85% or higher. Introduce incentive schemes to encourage schools to improve retrieval rates. • A realistic approach is required to curriculum design and subject assessment guidelines, which includes accurate budgeting for the materials necessary to deliver the NCS. The curriculum requires stability, to ensure that textbooks are relevant for a number of years. A basic school library package could be designed to suppor t curriculum design, where budgets cannot meet curriculum design requirements. • Review procedures for approving textbook procurement lists, to allow for annual price increases in publishers’ catalogues. Outsourcing procurement to a private company could have the advantages of bulk buying and efficient distribution. • Formulate textbook policies that aim to reduce the cost of textbooks and support material to provincial budgets and include libraries as an integral part of the package. Good small libraries and core content textbooks are potentially cheaper and more effective in terms of learning outcomes. However, the lack of library resources also needs to be addressed to implement this recommendation. • Consider whether introducing eight learning areas from grade 4 is too ambitious, given the levels of achievement in basic literacy and numeracy and that the language of tuition for most learners differs from their home language. • In introducing additional testing, ensure that learners have sufficient time and oppor tunity to learn what is required and that suppor t is in place for remedial suppor t to those who fail. • Early diagnosis and prompt remediation of learning problems is preferable to grade repetition and teachers should be trained to use continuous assessment for immediate, formative feedback. • Caution is needed in planning grade 9 external examinations, to balance improved grade 12 scores with the risk of greater drop-out at this level. • Provide additional chances for learners to obtain essential qualifications. The Second Chance initiative for students who failed Matric in 2007, shows students are keen to improve their results, with over 100 000 students registering for the supplementary exam in May and June 2008. The provincial departments need to provide extra tuition and suppor t to these students. 26 OECD (2007), Review of National Policies for Education South Africa, p 195, OECD, Paris.

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CHAPTER 10

FURTHER EDUCATION & TRAINING (FET) COLLEGES

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INTRODUCTION AND OVERVIEW

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The Q-ONE Trend Diary is distributed to over 100 000 students in South Africa and is used by the leading institutions. It is informed by international management principles and it goes way beyond a conventional ‘diary’. Instead, it employs a format HSRC,2005,p ix | 17 Depar tment of Education,2005f,p11-12 | 18 Depar tment of Education,2007 that encourages students to concentrate on their Performance ESP. The layout and OECD (2007), Review of National Policies for Education South Africa, page 302, OECD, Paris. format of the diary supports students in Effectively prioritising daily tasks, focus on OECD (2007), Review of National Policies for Education South Africa, page 314, OECD, Paris. their individual Strengths and work in Partnership to reach their full potential.

10 FURTHER EDUCATION AND TRAINING COLLEGES HANDBOOK For134 moreCHAPTER information about Argo and our (FET) range of achievement-focussed mediaEDUCATION solutions, please visit our website or contact us directly. +27 (0)21 865 2813 | info@argo.org.za | www.argo.org.za

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INTRODUCTION AND OVERVIEW

The teaching career

This chapter provides an overview of the FET system, which includes post compulsory education for grades 10-12 and the vocational training system. At the beginning of 2007, a provincial FET colleges system was designed to develop the skills needed for economic growth, to reduce pover ty and unemployment and make vocational training more attractive with the National Cer tificate (Vocational) (NC/V). I N TRODUCTION A ND OVERVIEW The FET policy initiative links closely to the Accelerated and Shared Growth Initiative of South Africa (AsgiSA) to address the current skills shor tages undermining South Africa’s economic growth.

S tudent enrolment In 2005, there were 400 000 students in public FET colleges.3 In 2007, there were 320 679 students in these colleges, which shows a decrease on the 2005 figures.4 This decrease does not reflect the plan to double FET places by 2010, to suppor t the strategy of prioritising areas of skills shor tages for the market. Student enrolment for 2007 was 25 087 (the target was 27 000) and the national objective is to reach a million students by 2016. 5 To attract students, bursaries have been made available (12 087 currently allocated), but students are reluctant to apply as the perception is that they would be classified as poor.

There are six broad objectives:

• Entrenching quality, by rationalising the number of colleges to 50, and providing recapitalisation of R1.9 billion (2005/06 to 2008/09) to upgrade facilities, retrain staff and implement a national curricula for general vocational programmes.

• Creating a co-ordinated FET system in South Africa.

• Promoting institutional autonomy and relevance.

• Broadening student access, par ticipation and improving achievement. Expansion is estimated to grow from 400 000 (1987: 54 000, 2007: 370 000) to 1 million, with 800 000 enrolled in courses funded by the DoE. This expansion is focused on addressing the high youth unemployment rate and the low education par ticipation rates in the 16-24 age group.

• Encouraging diversity and differentiation. • Monitoring systemic and institutional performance and ensuring public accountability.1

The FET colleges received a recapitalisation grant of R1,9 billion for 2005/06 and fur ther allocation is expected for 2008/09. 80% of programme funding is from a national budget subsidy on a per student basis, while the remaining 20% of funding is from the payment of student enrolment

fees, which are often covered by bursaries. The FET colleges focus on post-compulsor y education (prior to higher education) and skills programmes. These colleges include both the three year academic school programme after compulsor y education is complete and vocational education. For the NC(V), there are three compulsor y subjects and four vocational subjects reflecting the different fields of study. The three compulsor y subjects are: communication, mathematics/mathematical literacy and life orientation. The four vocational subjects are chosen from the different fields of study: civil engineering and building construction, electrical infrastructure construction, engineering and related design, finance, economics and accounting, hospitality, IT and computer science, management, marketing, office administration, primary agriculture and tourism. The new curriculum was only introduced in 2007 and publishers have been commissioned to produce materials and textbooks.2

Total enrolment in upper secondary education from grade 10-12 is 2 500 000 students, so the percentage of enrolment in public colleges and private colleges (700 000) is about 30%.5 This follows the general trend in other African countries, where this type of education is considered unattractive and “fit for only those who are academically less endowed”. 6

“From 2001 to 2005, SA was producing on average 5600 artisans per year compared to need for 12500. Previously, FETs worked in tandem with employers as vocational training, and employers sponsored students. This link has weakened since the 1990s and a graduate from an FET college has about a 30% chance of getting a job.” 7

1 OECD (2007), Review of National Policies for Education South Africa, p 64, OECD, Paris. | 2 OECD (2007), Review of National Policies for Education South Africa, p 245, OECD, Paris. 3 Depar tment of Education, 2006d, p 100. | 4 Depar tment of Education, 2009, Education Statistics in South Africa 2007, p 29. 5 OECD (2007), Review of National Policies for Education South Africa, p 243, OECD, Paris. | 6 African Union, 2007.

7 Education Roadmap: Focus on Schooling System. November 2008. DBSA.

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OECD Review Findings

Recommendations

O ECD R eview F indings The OECD review recognises the investment in the system and confirms that some of the colleges are impressive in size and the volume of training activities. For instance, the Tshwane South College in Pretoria has 27 777 students (full time equivalent of 8 702) and has developed strong partnerships with BMW and Mercedes and important groups in the field of construction. The Port Elizabeth College is also cited as an example with 12 410 students (full time equivalent of 3 400) with more than 200 public and private partnerships, including Nelson Mandela Metropolitan University (NMMU). However, the partnerships with companies appear to work on an ad hoc basis, which undermines the collaboration with business. Whilst there is a broad subject choice, there are limited career counsellors for

R ecommendations the students. For instance, there were only two vocational counsellors at the Tshwane South College. The distribution of the 11 programmes over the 50 colleges is not clear and questions are raised about whether the programmes are linked to labour market requirements or college tradition. Focus schools have also been developed to provide access to excellence in various educational fields (ar ts and culture, business, commerce and management, engineering and technology). Twenty-eight secondary schools serving historically marginalised communities have been turned into focus schools between 2005 and 2008. This was suppor ted with a budget of R82 million from 2005 to March 2007, to develop infrastructure, ICT equipment and other suppor t material. The budget allocation for

2007/08 was R30 million and the emphasis is now on curriculum development processes, capacity and skills development.8 The new Act has empowered the FET colleges to offer higher education programmes under the authority of a university and provides for the regulation and quality assurance of private FET provision. However, the transition to higher education is still under discussion and there are issues regarding the SETA’s recognition of the NC(V) subjects/levels, which undermines the qualification value. Colleges can also now employ their own lecturers, which creates instability regarding working conditions for existing lecturers. This is undermining the working environment for these lecturers.

• The strategic framework for economic growth and social cohesion should specify the contribution that human resources development plays in the process. It is essential to strengthen dialogue with the business community to ensure alignment between market needs and graduate skills. The recent decision to move the SETA’s to the depar tment of Higher Education is seen as a move to align vocational training with education. • A better link between education and the world of work is required to ensure that the youth see education as a route to a professional career and a better place in society. Criminality in the school environment needs to be addressed to ensure that it does not undermine education. • For the FET sector, priority should be given to resolving the issues relating to access to higher education and SETA recognition, to make this option more attractive. Social par tnerships need to be strengthened to improve the responsiveness of the labour market, to ensure employment oppor tunities. • While FET colleges can be providers of training under the National Skills Development Strategy (NSDS), there appears to be no evidence of this, and the worlds of education/initial training and continuous training are considered in isolation, which undermines the system for human resource development. • In concluding the analysis, the OECD review recognises that many of the recommendations are echoed in the Skills Development Strategy Review (February 2008) of the Western Cape.9

9 OECD (2007), Review of National Policies for Education South Africa, p 258, OECD, Paris.

FET Colleges Financial Aid Scheme R600 million allocated for FET Colleges Financial Aid Scheme over 3 years:

2007: R100 million 67% allocated to 12 378 students.

2008: R200 million 92% allocated to 36 791 students.

2009: R300 million This scheme is aimed at students that are unable to pay college fees and provides academically capable students with access to programmes at public FET colleges. Source: Depar tment of Education, 2009. Briefing to the Por tfolio Committee: FET Colleges. 4 February.

8 OECD (2007), Review of National Policies for Education South Africa, p 248, OECD, Paris.

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INTRODUCTION AND OVERVIEW

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TRANSFORMATION MODEL FOR HIGHER EDUCATION

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RESTRUCTURING OF THE SYSTEM

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IMPACT OF THE RESTRUCTURING

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FINANCING

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STUDENT ENROLMENT

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STUDENT ACCESS AND EQUITY

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about the key repor ts, issues and initiatives

EMPLOYMENT EQUITY

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covered in this publication.

GRADUATION STATISTICS

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QUALITY WITHIN THE SECTOR

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Building on the foundation of the Education Handbook, www.teacher.org.za is a new online platform with up-to-date information

GRAB THEIR ATTENTION!

HIGHER EDUCATION (HE)

We’d like to hear your comments and

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suggestions on how we can improve and

Prospective students can now see all their study and student lifestyle options at the click of a button.

expand both the website and the next edition of the Education Handbook. Log onto www.teacher.org.za today and post

Make sure that your institution and the courses on offer are featured on the country’s most comprehensive database of under-graduate qualifications.

your comments to make a real difference.

Not only does SAstudy.co.za provide students with an overview of what and where they can study, it also offers them vital information on how to make the right choices to make the most of their student years. Be there when they’re making the decisions! Profile on SAstudy.co.za today. For more information contact Argo: 021 865 2813 | info@argo.org.za

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INTRODUCTION AND OVERVIEW

GENERAL EDUCATION AND TRAINING OVERVIEW

During the Apar theid year s, higher education was arranged according to racial and ethnic composition, which has had serious consequences in terms of access, governance and funding. These institutions were also divided according to their type: univer sities, technikons and colleges, with science and knowledge production confined to the univer sities. Technology and the application thereof were confined to the technikons and colleges were focused on vocational, practical training in non-technology fields. This chapter profiles the changes to the higher education landscape, which has resulted in a more equitable system with greater access for all students. In the early 1990’s, a number of initiatives were implemented with the emphasis on developing a unitary system of higher education, aligned with the principles defined in the Constitution. At the end of 1994, the National Commission on Higher Education (NCHE) was established, which the OECD review has identified as a

landmark in the formal process of higher education policy formulation. This commission created space for policy debate, consultation and consensus-building. The NCHE repor t, titled “A framework for Transformation”, which was published in 1996, was widely acclaimed

and regarded as a model ter tiary education policy document.1 This was followed with the 1996 Constitution placing higher education as a national government competency, which was formalised in the Higher Education Act 101 of 1997.

More students and recapitalisation, but student readiness a concern • Head count increased from 473 000 in 1994 to 737 000 in 2005. • Since 2004, 30% of students received financial aid from Government. • Need more focus on academic-support programmes to compensate for schooling deficiencies. Source: Education Roadmap: Focus on Schooling System. November 2008. DBSA.

1 Moja and Hayward, 2001; Badat, 2004; Council on Higher Education, 2004; Bundy, 2006.

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TRANSFORMATION MODEL FOR HIGHER EDUCATION

T R ANSFORMATION M ODEL FOR HIGHER EDUC ATION The NCHE report identified three sets of ideas as emerging ‘pillars’ for transformation:

1. I ncreased participation In anticipation of increasing administrative burdens and rising expenditure expected from increased par ticipation requirements, the existing system was transformed into a single, co-ordinated system to eliminate inefficiencies and inherited inequities. The NCHE also advocated a policy of quality assurance by proposing a national qualifications framework, to address the quality differences, which existed within the system and in anticipation of the potentially damaging effects of increased enrolments on academic standards.

2. G reater responsiveness The second pillar of greater responsiveness focused on changing the traditional, disciplinar y approach to knowledge production, to a more open interactive and externally receptive approach (“mode 2” knowledge production) to ensure global competiveness. The repor t called for greater interaction of higher education with the surrounding environment, which required changes to the curriculum content and the modes of deliver y, quality assessment and research to adapt these programmes to market needs. 2 The OECD review confirms that higher education has moved away from Mode 1 (traditional, discipline-based knowledge production) to Mode 2 (interdisciplinary knowledge production carried out by teams of researchers across disciplines and institutions), as this is more open, interactive and responsive to the external environment.3

3. I ncreased co - operation and partnership The third pillar called for increased co-operation and partnership in governance structures with the emphasis on co-operative governance, so that the state would change the role of control and interference to an enabling and supervisory role. This model called for intermediary bodies to be established between the state and the Higher Education Institutions (HEIs), which would require governance to become more democratic and participatory. A set of linkages needed to be established between HEIs and the relevant stakeholders in civil society.

3 Pillars of Transformation • Increased par ticipation, • Greater responsiveness, and • Increased co-operation and par tnership.

In reality, the extent to which co-operative governance, aligned to policy formulations, has been achieved is a matter of dispute. The tension between institutional autonomy and the requirements of accountability and the steps taken to address the national demand for qualified skills have raised concerns over whether co-operative governance is a reality.4 The implementation delays and inefficiencies of institutional forums, par ticularly in relation to the par ticipation of previously disadvantaged groups, coupled with multiple demands on universities, have fur ther undermined the co-operative governance policy.

2 Council on Higher Education, 2004. | 3 OECD (2007), Review of National Policies for Education South Africa, p 329-348, OECD, Paris. 4 OECD (2007), Review of National Policies for Education South Africa, p 354, OECD, Paris.

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The NCHE report was followed with White Paper 3: A programme for the Transformation of Higher Education ( July 1997), which established a set of guiding principles for higher education, which included: • equity and redress • quality • development • democratisation • academic freedom • institutional autonomy • effectiveness and efficiency • public accountability While the paper did not accept the recommendation of the NCHE to increase par ticipation through massification, it did argue for a policy of planned expansion of higher education. This paper provided a detailed description of the role of “planning, funding and governance in a single, co-ordinated higher education system covering the full range of HEIs” including public universities, technikons, colleges (education, nursing and agriculture) and private higher education providers.5 The paper advocated a national higher education plan, with benchmarks for transformation and a system of three year rolling institutional plans to facilitate responsiveness by the system and to ensure planned expansion aligned to sustainability. In addition, a performancerelated funding system was recommended, to ensure efficient resource allocation aligned to policy objectives. The White Paper also identified three important roles of higher education in a knowledge-driven world: • Human resource development through lifelong learning to contribute to the social, cultural, economic and intellectual needs of a rapidly changing society.

• High level skills training to strengthen the country’s enterprises, services and infrastructure, which requires the development of professionals with globally competitive skills.

• Production, acquisition and application of new knowledge as national growth is dependent on continuous technological improvement, driven by a well organised, innovative research and development system, which integrates academic research with the needs of industry and social reconstruction.6

These roles are to be viewed in the context of globalisation and the ICT revolution, which impacts on the ways that societies are organised. The report supported the view that knowledge creation and the processing of information would be the key driving forces for wealth creation and social and economic development in the 21st Century. While the White Paper did not endorse the NCHE recommendation for a forum of stakeholders with policy advisory functions and a higher education council with intermediary status for planning and resource allocation, it focused on concentrating these functions into the Council on Higher Education (CHE), with a policy advisory and quality assurance mandate. The White Paper was followed with the National Plan for Higher Education (February 2001). The implementation vacuum between the White Paper and this policy framework was defended on the basis that there was a need for an “incremental approach to the development and implementation of the key policy instruments necessary to enable the creation of a single, coordinated system”.7

5 OECD (2007), Review of National Policies for Education South Africa, p 331, OECD, Paris. 6 Depar tment of Education, 1997, 1.12. | 7 National Plan, 1.2.

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The reasons for adopting an incremental approach were given as: • The lack of human capacity and technical skills to implement the comprehensive planning agenda in White Paper 3. • The absence of an adequate information base. • The need to develop a consultative and interactive planning process to ensure communication between the DoE and the Higher Education Institutions.

The absence of a plan led to the build-up of a competitive climate between the public HEIs, in anticipation of increasing student numbers and the growing private higher education sector. This climate resulted in further fragmentation and exacerbated the inequalities within the higher education system. The intensification of competition was also a product of declining student enrolments in the late 1990’s and financial constraints. For student enrolments, the average annual growth rate of 5% (19931998) declined sharply with a 4% drop in enrolments between 1998 and 2000. This was compounded by a decrease in Government expenditure from 0.77% of GDP in 2001 to 0.68% in 2003/04.

Historically disadvantaged Institutions had also increased enrolments without initial concern for fee recovery, on the assumption that a broad programme of redress funding would eventuate.This funding did not materialise and several of these institutions faced serious threats to their sustainability.8 The CHE repor t confirmed that these factors, together with other factors including a greater choice of institutions for students and their perceptions of declining quality associated with historically black universities, increased competition from private providers. Fur ther, the expansion of the National Student Financial Aid Scheme resulted in a net effect of “unplanned change”. Differentiation between the institutions based on market pressures and inherited differences exacerbated inequalities within the system.9

The system was perceived as having geographical dispersion, racial fragmentation, structural inefficiencies and institutional duplication. The administration of HEIs fell under the responsibility of the relevant national authority, represented by eight different government departments. There were also 120 colleges of education, 11 agricultural colleges and 24 nursing colleges. The White Paper on Higher Education (2004) resulted in the merging of institutions to reduce the number from 36 to 23. This merger resulted in the establishment of universities of technology, comprehensive universities and two institutes for higher

Financing From 1995 to 2003, public higher education was financed by government and its appointed agency, the National Student Financial Aid Scheme (NSFAS), which was established in 1995. In December 2003, a new funding framework (NFF) was published and implemented in the 2004/05 fiscal year. The principles supporting the NFF include: • The higher education system must be planned, governed and funded as a single, national, co-ordinated system.

R E STRUCTURING O F THE SY STEM The higher education sector is predominantly public and prior to 2004, it encompassed 21 universities and 15 technikons, together with a large number of small, single purpose private providers. There were also 120 colleges of education, 11 agricultural colleges and 24 nursing colleges.

which presents a struggle to reconcile the divide between academic knowledge and applied knowledge. Choosing a “knowledge niche” appears to be the best way forward, according to the OECD review.

education. The system was significantly restructured, including the closure of about 120 colleges of education which led to the relocation of education within the universities and techknikons. This restructuring was accompanied by the associated difficulties inherent in a rationalisation process.10 The new landscape included 11 universities, seven universities of technology and six comprehensive universities. In addition, two National Institutes of Higher Education were established in Mpumalanga and the Northern Cape provinces.11 In 2004, private higher education accounted for 93 institutions and 382 different programmes.12 However, the number of local and foreign private sector providers and the variety of partnership agreements between public and private HEIs has increased significantly. Reasons include a greater student interest in different programme formats and perceptions of declining quality in public education and instability of public HEIs.13

Impact of the restructuring The higher education sector is struggling with the effective governance of mergers and incorporations, which have taken centre stage since May 2002. Most comprehensive universities resulting from this strategy now face complex human resource issues relating to the merging of different cultures and the possibility that some of these institutions are too large and geographically dispersed to be easily managed.14 The OECD review confirms that most traditional universities have not been affected by the mergers, but the ‘comprehensives’ are struggling with multiple challenges, including management problems. These challenges relate to their curricular and institutional identities and market relevance. The comprehensives face the challenge of trying to respond to market needs by expanding the programmes on offer, while offering a mix of types of knowledge,

• The size and shape of the system cannot be left to unco-ordinated institutional decisions, if the national development agenda requirements are to be achieved. • The role of the government in the market model is to fund student demand and correct any market failures that may occur. • The higher education system needs to be steered to meet national goals through a combination of instruments, including planning, funding and quality assurance.

The planning model involves three steps: 1. The DoE determines national objectives. 2. Institutions develop three year rolling plans indicating how they intend to address the national objectives.

3. Interaction between the DoE and HEIs result in the approval of institutional plans, which triggers the release of funds.

The OECD review raises the following issues relating to the funding mechanism: • No provision is made for funding residences and additional fixed assets to meet anticipated student growth. • No funding is available for experiential training and for capital projects. • The lack of funding for capital projects and for maintenance may have serious consequences in the near future.15 • As a distributive mechanism, it only indicates relative student costs and does not make provision for inflation. • The fact that subsidies are made to HEIs based on racial composition of the student body and on the size of each institution.

The budget for HE in 2006/07 was R14 billion, which has increased on average by 10% per annum since 2004 and is expected to continue to do so until at least 2010.

S tudent enrolment The ratio of enrolments in different fields of study (humanities and social sciences (HSS), science, engineering and technology (SET) and business, commerce and management sciences (BCMS)) has changed remarkably from 57:24:19 (HSS:BCMS:SET) in 1993 to 42:29:29, which has closer alignment to the NPHE target of 40:30:30. The targets set for science, engineering and technology have not yet been achieved.16

8 Council on Higher Education,2004, p 27. | 9 OECD (2007), Review of National Policies for Education South Africa, p 333, OECD, Paris. 10 OECD (2007), Review of National Policies for Education South Africa, p 126, OECD, Paris. | 11 Council on Higher Education, 2004. | 12 Council on Higher Education, 2004. 13 Mabizela, et al., 2000 in Council on Higher Education, 2004. | 14 OECD (2007), Review of National Policies for Education South Africa, p 335, OECD, Paris.

15 OECD (2007), Review of National Policies for Education South Africa, p 360, OECD, Paris. 16 OECD (2007), Review of National Policies for Education South Africa, p 344, OECD, Paris.

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WORKING TOGETHER “Education is the great engine to personal development. It is through education that the daughter of a peasant can become a doctor, that the son of a mine worker can become the head of a mine, that the child of farm workers can become the president of a great nation. It is what we make of what we have, not what we are given, that separates one person from another.” NELSON MANDELA

WE CAN CHANGE LIVES Comments from NSFAS recipients: “I do not know how much I must thank you for what you did. It is ...[an]... extremely good and splendid job that you did for me. I would have been nothing should it not be NSFAS funds that made me continue with my studies during the difﬁcult times.” MMAKGADU LAWRENCE MARUAPULA Accountant, Ekurhuleni Metropolitan Municipality

“NSFAS has really afforded..me...an opportunity of a lifetime to tap into... [my]...intellectual potential and realize the beneﬁts of hard work. It has and will continue to be a cardinal pillar of academic excellence to disadvantaged students in fostering rigorous education accessibility.... [I feel]...very proud to have been associated with this great institution.

NSFAS is a registered credit provider in terms of the National Credit Act 34 of 2005 (NCRCP 2655)

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Those who have beneﬁted indirectly or directly from this institution should honour the obligation and pay the loan back when they commence working. This not only allows them to recycle it for future generations but to also maintain sustainability in this regard.”

OCTAVIUS PHUKUBYE Consulting Analyst, Accenture

Transformation of South African society involves many things, one of them being that those who participate in the formal economy should come from all communities in the country, and that both urban and rural societies have the opportunity to uplift themselves. Access to quality education is key to allowing young people from impoverished communities to enter the formal economy through following meaningful careers – thereby breaking the cycle of poverty that otherwise affects generation after generation. The NATIONAL STUDENT FINANCIAL AID SCHEME (NSFAS) was officially set up in 2000 through the passing of legislation, although it had existed in a different form (as TEFSA) for many years before. The Scheme has grown exponentially in recent years – for the 2009 academic year, we are working with over R3-billion in funding for students. Over 150 000 students received financial assistance through NSFAS for the 2008 academic

year, and there are many universities in which the largest source of student funding by far is from NSFAS. Funding is in the form of loans and bursaries – bursaries predominate in the scarce skills environment. Where loans are concerned, students repay when they begin working. The moneys that come back into the Scheme from repayments are put into the pool of funds available to current students. Funding is made available for undergraduate studies at public universities and universities of technology, as well as for the National Certificate (Vocational) at Further Education & Training (FET) Colleges. Donors are from both the public and private sectors. Both sectors use the Scheme to assist them to address the issues relating to scarce skills – through the provision of funding for studies in particular fields, NSFAS is able to provide suitably qualified young people to fill posts in the donor organisations or companies.

HOW YOUR ORGANISATION COULD WORK WITH NSFAS Through already running an enormous operation for the processing of donor funds for student funding, NSFAS is able to manage additional bursary funds within our existing structures and processes. Being a non-profit organisation, our management fees are low, restricted to merely covering our costs. Through our network of contacts at universities and our NGO partners, we are able to identify potential employees to help you fill positions in your organisation, in particular where the position falls within the scarce skills area. You can assist our NGO partners in the crucial support work they offer the students they work with (with funding for course fees from NSFAS). Providing students with work-shadow opportunities, internships, mentors, etc., helps them to get through their courses of study and to identify more clearly their career options.

For more information, please contact Bonny Feldman, NSFAS Communications & Development Officer, on (021) 763-3200 or via e-mail at BonnyF@nsfas.org.za.

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Student access, equity AMD EMPLOYMENT EQUITY

Student access and equity A fundamental goal of higher education transformation is the achievement of equity. The NCHE advocated increased participation to address this goal and called for an increase in participation rates from 20% (1996) to 30% by 2005. This implied that student numbers would increase from 800 000 (1995) to 1.5 million in 2005.17 In 1994 only R10 million was available to fund student enrolment. According to 2005 projections, government’s contribution to NSFAS is expected to grow from R578.2 million (2004/05) to R1.1 billion in 2007/08, of which R120 million is for initial teacher training bursaries and R100 million for FET college bursaries.18 In 2001 the National Policy for Higher Education set a target par ticipation rate of 20% over a 10-15 year period.19 In 2006, the enrolment ratio for the 20-24 age group was 14,5%. Following a recommendation from the Council on Higher Education, these targets were revised to an increase from 15% (2001) to 20% by 2010-2015.20 The OECD review confirmed that these targets were not being achieved and that the assumptions on which the expansion policy was premised are unrealistic. Only 15-18% of secondary school graduates achieve the results to enter university and this has created pressure on higher education institutions to accept underprepared students, many from disadvantaged

backgrounds.21 Despite these challenges, there has been a steady growth in student enrolments over the past decade, with more black and female students attending. The composition of the student body is currently more equitable compared to academic staff, with senior academic positions being dominated by white males. In 2006 the propor tion of African to White students had radically changed with 61% of students being Black (a 21% increase from 1994), and 25% White students (22% decrease from 1994).22 Black student access to higher education has considerably broadened with the overall par ticipation rate increasing from 14% (1995) to 16% in 2006. This increase in enrolment is accredited to the National Student Financial Aid Scheme (NSFAS), which accounts for one-third of the enrolment increase.23 Access to the science and engineering sectors is still limited. The gender equity propor tion has also reversed from 52% representing male students in 1993 to 44.9% in 2006, but women are still underrepresented in the science, engineering and technology and business, commerce and management fields.24 Student population statistics (2006): 61% ( 4 5 1 1 0 8 ) a r e bl a c k A f r i c a n , 2 5 % ( 1 8 4 668) are White, 7.4% (54 859) are Indian and 6.6% (48 538) are Coloured. Females represent 55.1% of all students.25 In 2006, 41.3% of students were studying education or the broad humanities and social sciences, 30.1% business and management, 28.5% sciences, engineering and technology.26 I n 2 0 0 6, there were 741 383 students in HE (with 16 077 lecturers with student: teacher ratio of 46:1).27

RESTRUCTURING OF THE SYSTEM

Graph 1: Student Population Statistics (2006) 25 Black African: 61% (451 108)

Indian: 7.4% (54 859)

White: 25% (184 668)

Coloured: 6.6% (48 538)

6.6% 7.4%

25%

61%

Graph 2: Student Population Statistics (2006) 26 Education or the broad humanities and social sciences (41.3%) Business and management (30.1%) Sciences, engineering and technology (28.5%)

30.1% 41.3%

E mployment equity By 1994, the public higher education sector employed 45 000 staff, with 17 000 representing professional staff (academic, executive management and suppor t professional staff). 80% of professional staff were White and 34% were women. Nearly 70% of the full-time Black academic staff were employed in historically Black institutions. White Paper 3 and the NPHE indicated that a key policy goal was the transformation of the racial and gender composition of staff, to ensure equitable access and progression for previously disenfranchised groups. Reasons for this inequity related to a limited pool of available and suitably qualified talent with the relevant equity profile, compounded by institutional and academic disciplinary cultures. These cultures were suppor ted by power struggles at the lower levels to fur ther constrain effor ts towards staff equity. The size of the higher education workforce declined from 45 848 to 44 187 in 2006 relating to a decline in service staff, whose functions were outsourced to private contractors. These staff losses only affected universities, not technikons, where the staff numbers increased 1.2 times during the same period. Gender equity improved over the period 1995-2006 with the propor tion of women professionals increasing from 13% to 19.1% for this period, and the propor tion as senior lecturers increased from 28% to 40.6%.28 The OECD review confirmed that there is a danger of compromising quality, if too much emphasis is placed on equity and redress.

28.5%

17 Depar tment of Education, 2001,p 19. | 18 Wildeman, 2005, p 16. | 19 Ministry of Education, 2001. | 20 Council on Higher Education, 2004, p63. 21 MacGregor, 2008. | 22 OECD (2007), Review of National Policies for Education South Africa, p 341, OECD, Paris. | 23 Depar tment of Education, 2004a, p 30. 24 Badat, 2004; Cloete, 2004 | 25 Depar tment of Education, 2008, p 33. | 26 Depar tment of Education, 2008, p 31. | 27 Depar tment of Education, 2008.

28 OECD (2007), Review of National Policies for Education South Africa, p 346-348, OECD, Paris.

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Graduation statistics AND Quality within the sector

G raduation statistics An impor tant indicator of equity and redress is the extent to which a system manages to retain the majority of its students until graduation. The OECD review confirms that, apar t from the historically White English institutions, the retention rates for the system have declined since 1997. Of the 368 217 graduates produced in 2007, the average success rate for female students was only 64.5%, compared to 86.1% for male students.29/30

The HE system is not fulfilling its crucial human resources development effectively, and six areas of concern were identified: 31 • Increasing the size and par ticipation rates. • Efficiency of inflows into and within the sector. • The relevance of outputs in terms of alignment with market requirements. • Equity. • Quality of outputs. • Capacity to implement change and meet transformational challenges.

The rationalisation of the sector and the changes in the funding formula are strategies to address these challenges.32 The OECD review suggests a detailed, systematic investigation into student success rates, par ticularly the throughput

29 31 32 34 36

rate. A recent CHE study confirmed that affective and institutional cultural factors and the teaching and learning processes had a major influence on student performance.33

Quality within the sector Prior to 1995, there was no single, coherent system of quality assurance for higher education in South Africa. The NDHE repor t called for the establishment of a single, co-ordinated system as a first priority. Other steering mechanisms included a national qualifications framework, new research funding, national provision of distance education and resource-based programmes, systematic planning processes and improved capacity and infrastructure of all HEIs.34 The Government developed the National Qualifications framework (NQF) as a steering mechanism, to integrate all education and training and on which all higher education qualifications must be registered. The NQF framework has been criticised for its emphasis of form over content, and the OECD review highlights the need to maintain the emphasis on content to ensure that the HEIs remain relevant to market needs, par ticularly in the context of globalisation.35 The Council on Higher Education (CHE) was established in 1998, with policy advisory and quality assurance responsibilities. Every year, the CHE is expected to publish a repor t on the state of higher education for submission to Parliament. It is also expected to convene an annual meeting of relevant higher education stakeholders. The challenge of the CHE was to create a quality assurance system, capable of accommodating equity and social justice

RECOMMENDATIONS

issues, accountability, funding and human capacity development demands. The Higher Education Quality Committee (HEQC) was established in 2001 to include standard quality elements common to other higher education systems internationally, together with elements specific to South Africa.

The HEQC has moved from system-building to policy implementation and is addressing new challenges, including: • The need to safeguard institutional autonomy in the process of external quality evaluation. • The impor tance of ensuring that the new funding mechanism does not reward underperforming HEIs. • To ensure active involvement and commitment of academics and students in the quality assurance process. • A sustained effor t to ensure that internal quality management and continuous improvement are institutionalised and become par t of the culture of each institution.36

The OECD review expressed concerns over the entry requirements to universities. Some HEIs are currently offering a foundation year or considering the extension of the curriculum from one semester to a full year to address this challenge. The OECD review calls for proper planning and co-ordination of these ad hoc initiatives.37

Depar tment of Education, Ed. | 30 Depar tment of Education, 2006e, p 39. Subotsky, G. (2003), Private Higher Education and Training, HRD Review, http://hrdreview.hsrc.ac.za, accessed 19, July 2008. Education Statistics in South Africa 2007, p 21. OECD (2007), Review of National Policies for Education South Africa, p 73, OECD, Paris. | 33 Council on Higher Education, 2007. OECD (2007), Review of National Policies for Education South Africa, p 351, OECD, Paris. | 35 OECD (2007), Review of National Policies for Education South Africa, p 350, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 352, OECD, Paris. | 37 OECD (2007), Review of National Policies for Education South Africa, p 350, OECD, Paris.

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R ecommendations

• The OECD review confirmed the necessity to restructure higher education, but draws attention to the need for change leadership to manage the subjective elements, including culture and vision. This element of transformation has been seriously underestimated. 38 • The comprehensive universities face serious challenges and the OECD review recommends that these institutions become specialised by identifying one par ticular niche or risk losing their way. • The OECD review recommends longitudinal and ethnographic/qualitative studies to identify the key factors impacting on student success to address the issue of low graduation and high drop-out rates, par ticularly in the field of mathematics and science. The higher education system is not fulfilling its function in terms of producing the high quality human capital needed to sustain social and economic development in South Africa. • A more pro-active and long-term approach to academic preparation and social integration for first year students should be under taken, which takes account of the diverse backgrounds. Strategies could include conventional extracurricular bridging programmes as well as literacy programmes designed to develop generic competencies and skills, including study skills, leadership skills, team work, time management etc. There is evidence that some institutions have already implemented initiatives, but this needs to be systemised so that good practice can be integrated throughout the system. 39 • While many HEIs have improved on the demographic profile of their academic staff, this has occurred without the necessar y suppor t for junior lecturers. More emphasis needs to be placed on developing these skills. The OECD repor t recommends that the DoE, in conjunction with HEIs, ensures that training courses are offered on a regular basis to develop these junior lecturers and that senior faculty members are appointed as mentors for junior staff. • The OECD review also recommends changes to the funding mechanism, including addressing the lack of funding for residences, experiential learning, capital and maintenance costs and ways in which incentives are used to encourage research and teaching productivity.

Higher education has been reorganised and now operates within a globalised, highly competitive environment, facing many daunting challenges. Whilst recognising the autonomy of the institutions, the DoE seeks to influence the direction of educational studies in alignment with national priorities. Incentives are provided in relation to the successful student progression through the system and the completion of research. The council for higher education (CHE) is responsible for quality assurance of academic courses and course validation. There are issues relating to the lack of preparedness of learners for higher education and the requirement for greater accessibility.

38 OECD (2007), Review of National Policies for Education South Africa, p 361, OECD, Paris. | 39 OECD (2007), Review of National Policies for Education South Africa, p 362, OECD, Paris.

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1 Depar tment of Education,2006i,p6

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GENERAL EDUCATION AND TRAINING OVERVIEW

The adult population reflects the disparities of the Apar theid era education policy, which emphasises the need for ABET to enable full par ticipation in the new democracy. ABET is designed to offer adults over 15 year s an alter native to the GET and FET qualifications, to address the lar ge number s of South Afr icans who are illiter ate and are alienated from contr ibuting to society. This chapter reviews this cr itical sector of education and the role that it plays in suppor ting democr acy. I N TRODUCTION A ND OVERVIEW In 2006 there were 2,8 million South Africans who had never been to school and 3.9 million who had left school without completing grade 7 (the compulsory level now required).1 The adult literacy rate has risen from 14.6% (1991) to 67% (1996) to 89% (2004). By 2005 there were 269 140 adult learners, 17 181 ABET educators employed in 2 339 Public Adult Learning Centres (PALC) offering ABET levels 1-4. An estimated 300 000 learners are reached through programmes offered by SETAs, NGOs, CBO’s (community based organisations) and private ABET providers.2 In addition, the corporate sector is also a major provider of ABET.

F inancing of ABET provision The National Skills Development Strategy (2005-2010) envisages expenditure of over R20 billion to address the skills shor tage and to train 700 000 workers to ABET level 4.3 ABET expenditure does not rank highly on the Government’s list of priorities.4 Up until 2007/08, ABET received less than 1% of the education budget and a review of the Skills Strategy Success indicators revealed that the impact of this budget was minimal.

“The National Skills Development Strategy (20052010) envisages expenditure of over R20 billion to address the skills shor tage and to train 700 000 workers to ABET level 4.” 3

C onflicting statistics undermining the sector The initial target identified by the Depar tment of Labour (DoL) of 700 000 workers was unrealistic and the reality was that only 82 468 entered ABET and 14 048 completed the ABET level 4 cer tification. 5 However, it is difficult to assess the situation as there are conflicting statistics. The DoL figures differ from those of the DoE, which confirmed that there were 270 000 learners in the Public Adult Learning Centres offering ABET levels 1-4. According to the DoE statistics, adult literacy is rising from 14.6% (1991) to 67% (1996) to 89% (2004).6 The debate around the statistics centres on the definition of illiteracy and inter-province variances, which makes it difficult to assess the impact of ABET programmes since democracy.

THE NEED FOR C O L L A B O R AT I O N There are strong links between ABET and other social development programmes, which highlights the impor tance of ABET for effective democratic par ticipation and the power of family literacy learning. To achieve these linkages between education and other social development programmes, collaboration is needed with social par tners. These par tners include employers, unions and community representatives, par ticularly for developing delivery methods and recognising learning achievements.

1 Statistics South Africa, 2007b. | 2 OECD (2007), Review of National Policies for Education South Africa, p 65, OECD, Paris. | 3 Depar tment of Labour, 2005. 4 OECD (2007), Review of National Policies for Education South Africa, p 66, OECD, Paris.

5 2007 National Skills Conference. 6 OECD (2007), Review of National Policies for Education South Africa, p 227, OECD, Paris.

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Commonality Between ABET and ECD, Targeting ABET provision AND The Kha ri Gude Mass Literacy Campaign

Commonality Between A B ET and E C D The responsibility for ABET is shared between the Depar tments of Labour and Education and is regulated by the Adult Basic Education and Training Act of 2000. It is found that the levels of adult literacy impact on ECD development, which highlights the need for collaboration between these two sectors of education. 7 The formulation of the national guidelines for ECD ser vices (2006) illustrates the Government’s effor ts to address equity and economic growth by prioritising ECD and ABET. The commonality in these sectors is fur ther complicated by the sharing of responsibility between depar tments. In ECD provision, the responsibility is shared between the Depar tments of Social Development and Education. In ABET provision, the responsibility is shared between the Depar tments of Labour and Education. While shared responsibility can lead to a strong co-ordinated whole of Government policy and implementation at both national and provincial levels, the reality is that this is not occurring. The OECD review confirms the need for cross-depar tmental leadership for these sectors.8 Both ECD and ABET are complex fields, given that these priorities span a number of government depar tments.

The OECD review proposes two ways of addressing the complexity: • The creation of an inter-departmental and/or inter-governmental co-ordination body to ensure co-operative policy frameworks. • To bring all national responsibility to one lead ministry at the national level. The Ministries of Education, with the focus on children and the networks required to create a quality system could address the policy field more coherently. By bringing policy under one agency, the OECD review confirms that there is a more coherent policy and greater consistency across sectors. This results in a more effective investment and improved public management of services. The OECD review urges the Government to revisit the underlying principles of the ABET policy, to ensure that a governance structure is in place to address these challenges. These challenges are illustrated in the situation of the DoL requesting calls for a substantive programme in January 2007, and then delaying the process, to wait for the DoE to release its Adult Literacy Strategy. These delays frustrate the effor ts of NGO’s and other local provider organisations, which undermines the entire system.

Targeting ABET provision Based on previous research conducted by the OECD, it is found that it is most effective to invest in adult learners at a young age, by reducing the drop-out rate

RECOMMENDATIONS FROM THE OECD REVIEW

at school level and getting drop-outs into other oppor tunities as early as possible.9 This requires strong links between training and employment, par ticularly through flexible qualification pathways, to provide a structure for adult learners to progress.

This campaign, known as Kha Ri Gudi, is supported with R6.1 billion in funding and a national secretariat for the campaign is being established as a separate branch of the Department. The learning outcomes developed for the campaign are:

The establishment of the National Qualification Framework and learnerships through the SETA’s was aimed at addressing this strategy. However, the implementation has been criticised for being too bureaucratic, as learning occurs in a variety of formats and cannot be limited to the formal courses.

Table: The Department of Education’s 5 year Strategic Plan

Critics of ABET provision cite the “heavy formalisation with structured programmes and qualifications”. ABET is “more likely to meet the needs of those with some schooling and currently in employment”. This excludes those adults who have no schooling and who are unemployed.10

The Kha ri Gud I M ass L iteracy C ampaign In 2006 a Ministerial Committee of Literacy was set up to plan for a mass literacy campaign, focused on social mobilisation and a national call to action involving a broad range of par tners and communities. A proposal was developed on the Cuban Literacy model, which was implemented in Venezuela and New Zealand. This program was also informed by the experience of the South African Literacy Institute (SANLI). The committee recommended the upscaling of a programme based on the earlier UNISA-SANLI experiences of 2002/03, and implementation is defined by the following challenging goals in the 5 year strategic plan:

• Mother tongue alphabetisation and functional literacy, • A basic verbal component of English usage, • Numeracy at the level of basic number concepts and arithmetic operations for everyday use.

Strategic Objectives To expand provision of basic literacy for adults

Performance Indicators 2007

2008

2009

2010

2011

An implementation plan and communication strategy for the mass literacy strategy developed.

Implementation of the mass literacy strategy amongst 30% of the total illiterate adults.

Implementation of the mass literacy amongst 75% of the total illetare adults.

Implementation of the mass literacy strategy amongst 100% of the total illiterate adults.

Report on impact mass literacy strategy.

Source: Depar tment of Education (2007a), Strategic Plan (2007-2011), Depar tment of Education, Pretoria. The operational plan requires 80 000 tutors to be recruited and provided with the appropriate learning materials. This presents major challenges in quality standards and flexibility associated with finding the tutors. The repor t identifies 60 000 UNISA trained ABET educators as a national resource that can be mobilised for this campaign, but there are concerns about this resource. These concerns centre on the lack of formal employment contracts with these tutors and that these educators will receive a nominal amount for this work. Also, the history of low and spasmodic investment in ABET and the heavy reliance on NGO work has left a legacy of low confidence in the system to provide high quality programmes. There are already concerns about the tender process for implementation and the responsiveness of the programme. This campaign was released in May 2007 to target 4,7 million illiterates from 2007 to 2012 with a budget of R850 million over the period 2007/08 to 2009/10.11 ABET is further supported by The National Adult Learners Week and the International Literacy Day, which recognises teachers and learners.12

R E C O M M E N DAT I O N S F RO M T H E O E C D R E V I E W The OECD review highlights that experience has shown that adult learners with higher levels of skills are most likely to benefit from ABET. The target group for the existing literacy campaign is focused on those learners who have never attended school or who left school before completing primary schooling. This raises concerns about the effectiveness of the campaign, which will require additional suppor t in achieving literacy. For effective par ticipation in the economy, the OECD review recommends focusing the initial campaign on those learners who are only marginally below the skills levels needed by industry, as these learners have the greatest potential to suppor t transformation in South Africa.13 Specific recommendations from the OECD review include: • Improve ABET statistics to enable policy design to target the greatest areas of need. • Prioritise investment in the development of programme suppor t materials and assessment tools for the mass adult literacy programme, to ensure effective delivery. • Plan for a longer-term strategy to use the skills and knowledge of ABET volunteers to upskill the general population.

7 OECD (2007), Review of National Policies for Education South Africa, p 222, OECD, Paris. | 8 OECD (2007), Review of National Policies for Education South Africa, p 218, OECD, Paris. 9 OECD (2007), Review of National Policies for Education South Africa, p 231, OECD, Paris. | 10 OECD (2007), Review of National Policies for Education South Africa, p 228, OECD, Paris.

11 Depar tment of Education, 2007d. | 12 OECD (2007), Review of National Policies for Education South Africa, p 67, OECD, Paris. 13 OECD (2007), Review of National Policies for Education South Africa, p 232, OECD, Paris.

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CONCLUSION

Education in South Africa has undergone fundamental changes, resulting in improved equity, access and educational alignment with the constitution. The educational architecture is in place, suppor ted by pro-poor funding policies to undo Apar theid’s infrastructural backlogs. Bold attempts have been made to overhaul the curriculum with difficulties being experienced in implementation. C ONCLUSION It is clear that “vision, idealism and high-minded concern for a greatly reformed education system” are reflected in policy development. However, it is also clear that “there was an underestimation of the time, resources and qualitative teaching force required to make operational the policy aspirations”.1 There are key issues of access in sub-sectors (grade R and inclusive education) and there are still issues with regard to access to quality education facilities and learner achievement variances. Critical questions remain about the adequacy of funding in education and the efficiency of the utilisation of this investment. There has been a prolonged period of policy development and implementation, with issues being raised about the appropriateness and efficiency of implementation. The task ahead is on ensuring the effective realisation of the policies in the classrooms and lecture halls throughout South Africa.2 Recommendations need to be grounded in concrete, practical reality and pragmatic proposals are required for the resolution of problems. Resource constraints are recog-

nised to impact on the ability to implement recommendations. It is recognised that education reform plans need to be viewed in relation to the type of society for which they are intended. South Africa has a predominantly young population (42.2% younger than 20 years) and about 40% of the population live in rural areas where poverty and unemployment are high. Over the past decade, rapid urbanisation has occurred without the resultant increase in employment, as most of these job seekers are unskilled. Most urban areas are surrounded by shack settlements with little or no access to basic services.3 The high levels of poverty are being addressed in part by social grants, with household access to social grants increasing from 11.6% (1995) to 32.8% (2003). This is further supported by the national school nutrition programme (over R1 billion spent in 2006/07). Experience has shown that sustained, multifaceted resourcing and suppor tive action are required and that the time scales for this transformation are much longer than initially anticipated by policy makers.

Educational transformation and policy implementation have been constrained by the scale of the existing problems, the competition from other social sectors, the difficulties in redirecting funds from personnel to non-personnel expenditure, the inefficiencies in education management and deliver y and a lack of capacity at provincial and local government level. 4

The OECD repor t confirms that the reform concepts were conceptually strong, but that change management has failed. Successful change requires more than new structures, policy and processes of technology. It requires the engagement and par ticipation of everyone affected by the change, to develop a new set of behaviours and values. “It is clear that the capacity of some provincial depar tments and of school leaders, to manage change and introduce reforms should be improved.”5 A global approach is required, including the recruitment of new exper tise, specific training programmes, suppor t and coaching of provincial educational, financial and organisational civil servants, key managers and exper ts.6 This is essential to have: • a better understanding of education reform and concepts, • frequent contact between colleagues of the national and provincial departments and with the districts and schools, • clear objectives, • effective monitoring of objectives and projects, • regular evaluation of the progress achieved. The OECD report highlights the essential feature of feedback in the policy cycle between the implementation and evaluation phases. This feedback becomes the basis for adjusting policy and practice to make a better fit or for re-evaluating the policy. The feedback loop is easier to close if policy development and implementation are the responsibility of the same organisation. According to the OECD review team, the major risk of separating them is that “the circle would be interrupted and implementers would lose contact with the intentions, objectives and spirit of the policy and

1 OECD (2007), Review of National Policies for Education South Africa, p 127, OECD, Paris. | 2 OECD (2007), Review of National Policies for Education South Africa, p 130, OECD, Paris. 3 South Africa Qualifications Authority, 2007, p 2. | 4 OECD (2007), Review of National Policies for Education South Africa, p 146, OECD, Paris. 5 OECD (2007), Review of National Policies for Education South Africa, p 146, OECD, Paris. | 6 OECD (2007), Review of National Policies for Education South Africa, p 146, OECD, Paris.

7 8 9 10 11

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regulation; and policy makers might not receive continuous feedback from those who are most closely involved in making the reform work on the ground”.7 Union leadership, in meetings with the OECD review team, have expressed interesting and constructive views on education in South Africa, but the focus of their work is on national and provincial bargaining, rather than on suppor ting decision making in schools.8 Many of the reform documents provided to the OECD review team appear impressive, but when viewed in the context of where they are expected to be implemented in, come across as removed from reality. The design of policy, while difficult, is easier than the implementation and it is implementation that counts.9 The promulgation of norms and standards will not, of itself, create behaviour change. It is essential to conduct preparation with road testing to identify whether proposed policy will be effective in reality.

“The quality of its education system is of crucial impor tance to the future development and well-being of South Africa”. 10 It is the view of the OECD repor t, that “a consistent and sustained line of action, based on the recommendations presented in this review, will enable South Africa to accelerate the achievement of the extensive and ambitious educational reform to which it has committed itself ”.11

OECD (2007), Review of National Policies for Education South Africa, p 147, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 147, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 147, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 129, OECD, Paris. OECD (2007), Review of National Policies for Education South Africa, p 133, OECD, Paris.

RIGHT ON

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Where to from here AND THE 10-POINT PROGRAMME

W here to from here ? Whilst conducting the research for this handbook, the insights gained confirm that the education system is highly complex and cannot be compar tmentalised and fragmented across a range of stakeholders.

THE 1 0 - P O I N T P RO G R A M M E A. In-school 1.

Teachers to be in-class, on time, teaching. Teachers to also be required to use textbooks in class.

Focus effor ts on improving the quality of early childhood education and primary schools, including implementing the “Foundations for Learning” Campaign emphasizing the promotion of language and numeracy.

The challenge for educational leaders is in maintaining an informed view of education, whilst dealing with the daily challenges of increasing workloads and commitments.

Conduct external tests for all grade 3 and grade 6 learners every year, and provide the results to parents.

Ensure effective evaluation of all teachers based on extent to which learner performances improve, with results influencing occupationally specific dispensation pay for teachers.

The handbook has been designed in recognition of this need for a quick reference guide, which focuses on education, but provides insights into the role of education within the broader society.

Enhance recruitment of quality teachers and strengthen teacher development

In concluding this resource guide, it is evident that this is just the beginning. The policy has mapped out the direction forward for education, but without dedicated work from all of us, the policy will remain ineffective and will not lead to a better future. It is essential that we “walk together” and collaborate with each other, to suppor t and grow education, to make a difference to our society. This requires a collaborative platform, to allow the leaders in education to connect and share ideas in real time, as new insights are gained. It’s time that we connected with each other, so that together we can make a difference. Join us in this exciting challenge of making a difference, by making sure your voice is heard and your insights are shared. We are developing an exciting collaborative platform to enable you to share your insights: www.teacher.org.za to kickstar t collaboration across the sectors. We have also included an overview of educational websites and blogs to fur ther enable you to collaborate with each other as we believe that connectivity will make the challenges less daunting and more achievable. Together, we can achieve the dream of free, quality Education For All (EFA).

•

Offer bursaries to attract quality student in-take into teacher training institution and offer student loan repayments to attract young graduates into teacher contracts.

•

Enhance pre-service and in-service teacher training, including through better coordination and resourcing.

•

Ensure that teacher unions have a formal and funded role in teacher development.

B. Support to school 6.

Strengthen management capacity to ensure working districts and schools. This entails bringing in management capacity from the private sector, civil society and elsewhere in the public sector. •

Phase in a process of measurable improvements through targeting efforts at selected education districts and dysfunctional schools.

•

Use of infrastructure budgets as an incentive for schools that deliver improved teaching and learning.

Increase the use of ICT in education, including audiovisual teaching materials in the classroom to supplement teaching and demonstrate quality teaching to learners and educators.

Improve national-provincial alignment and efficiency of education expenditure, through procuring textbooks nationally and allocating resources to improve district capacity. In this regard, the use of conditional grants is an important tool to ensure alignment.

C. Societal 9.

Develop a social compact for quality education. This will include a National Consultative Forum dedicated to clarifying the “non-negotiables” and performance targets for key stakeholders, and the monitoring thereof. •

Mobilisation of communities at all levels should be encouraged to raise awareness and participation in education issues. Examples include graduates assisting their former/ dysfunctional schools to assist, corporate social investment, party branch campaigns to clean up schools, and supporting food gardens, and encouraging young graduates to enter teaching (“Teach SA”).

It is essential that we “walk together” and collaborate with each other, to support and grow education, to make a difference to our society.

10. Implement pover ty combating measures that improve the environment for learning and teaching, such as a nutrition programme (cross-cutting programme with health), basic infrastructure for schools, and social suppor t for children. Source: DBSA roadmap process

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Time to Connect Building on the foundation of the Education Handbook, www.teacher.org.za is a new online platform with up-to-date information about the key repor ts, issues and initiatives

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T HE VREDENBURG CHILDR E N ’ S P RO J E C T

T H E W E S S A / W W F E C O S C H O O L S P RO G R A M M E

Every child has a right to education. We all believe in and propound this truth. And yet in South Africa, many children are not accessing this basic right. Daily, these children face enormous challenges, many of them living in dire circumstances. It is not surprising that their progress at school is affected. In some cases, they may not even have been able to go to school. Vredenburg Children’s Project was born out of a serious concern about out-of-school children – children who have never been to school and children who have dropped out of school prematurely.

The WESSA/WWF-SA Eco-Schools Programme, an international programme, was launched in South Africa in 2003 and is supported by WWF-SA and implemented by the Wildlife and Environment Society of South Africa (WESSA). Hettie Gets, Manager of WWF-SA Conservation Education Programme: “The aim is to ultimately provide learners and educators with the capacity and skills to make informed decisions about their lifestyles, livelihoods and relationships with their environment.”

H ow does the Vredenburg Children ’s Project make a difference in education? Vredenburg Children’s Project focusses mainly on the right of all children to access education. We looked at children who have dropped out of school or who have never accessed schooling. We understood that risk as well as protective factors exist both within individuals, and across the various settings in which they live, e.g. family, peer group, school and community. We also focussed on children with disabilities who are often excluded from or not able to benefit fully from education. We saw how they were, in many instances, doubly disadvantaged by circumstances in their homes, communities and the broader society. Effor ts to prevent or remedy school and educational exclusion need to target all the different layers of the child’s ecosystem.

How does the Eco Schools Programme make a difference in education? The Eco-Schools programme is designed to encourage curriculum-based action for a healthy environment. It is an internationally-recognised award scheme that accredits schools that make a commitment to continuously improve their school’s environmental performance. When schools register with the programme, both teachers and learners commit to an ongoing process of developing lesson plans and learner-centred activities that are in line with The National Curriculum Statement (NCS). They choose one focus area, develop lesson plans and school improvement plans and record their progress in a por tfolio. Each consecutive year, a new theme is added to the previous themes. Por tfolios are assessed at the end of a year, and successful schools gain Eco-School status and are awarded a cer tificate, or a green flag.

What are the challenges the V redenburg C hildren ’s P roject are currently facing ?

What are the current challenges the E co S chools P rogramme is facing?

The main challenges the Vredenburg Children’s Project are facing is pover ty (where number of households with no income = 2060) and unemployment, negative attitude of the community towards children with special needs, problems with the care dependency grant, lack of information, inclusion into mainstream schools, concern about future employment for these children, racial conflict and tension, community is not disability-friendly and lack of municipal services.

Sheraine van Wyk of the Overstrand Conservation Foundation, Western Cape: “I have found that the public school staff are overburdened with the demands of their teaching posts and struggle to juggle their duties in order just to meet with me.”

H ow can these challenges be overcome ? We decided to implement the project in two phases. The first phase has two main focuses, the first is to gain a greater understanding of both the nature and the extent of the problem of out-of-school and vulnerable young children in the Vredenburg community. The second focus is to identify existing and potential resources and services in the community which could suppor t these children. The first phase culminates in the drafting of this repor t to be used as a basis for fur ther planning and action. The second phase of the project is to be an “action” phase with the focus on mobilising and capacitating a network of role-players at all levels who can join hands to suppor t the inclusion of all children in educational settings. Working within a developmental paradigm, we are endeavouring to build par tnerships with local role-players and to promote local ownership of the project. This, we believe, is crucial to the sustainability of the Vredenburg Children’s Project.

Why is the V redenburg C hildren ’s Project so successful ?

Joe Peu of the Trident Steel Node, Gauteng finds that “Teachers still struggle to link environmental work they are doing with the curriculum. They think that specific lesson plans related to each focus area need to be developed; this is why they see Eco Schools as additional work. What they fail to realise is that they could easily link topics, abstract concepts and themes such as radiation, photosynthesis, absorption they have been teaching learners for years to the environment outside with ease. Learners would understand these topics/themes, concepts much better than an abstract understanding of these concepts in the classroom.”

How can these challenges be overcome? These challenges can be overcome with the Eco Schools Programme. The programme is a co-curricula programme and provides a framework for teachers to implement the National Curriculum in which numerous environmental learning outcomes are imbedded. I.e. it is a framework that helps teachers do what they should be doing in the classroom, highlighting environmental themes in the curriculum and ensuring that good learning and action take place. This curriculum-based programme offers oppor tunities to improve the school environment, build young people’s confidence and sense of citizenship through par ticipation, increase environmental awareness, involve the local community, and target all those key issues that prohibits our teachers and learners to be more effective in learning and in the education system.

The children’s project is so successful because it targets the problems within the community first before implementing a solution. This way integration of children with special needs into the community and schools are easier and more accepted. One of our guiding principles is to ensure that we work in par tnership with the community of Vredenburg with the aim of promoting local ownership of the project. As we have gradually got to know key role players in the community, we have increasingly been able to consult them in the planning for the project.

Why is the Eco Schools Programme so successful ?

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Email: lbrummer@iafrica.com

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At its core, the WESSA/WWF-SA Eco-Schools South Africa has a winning concept of rewards for sustained school environmental action and learning. Teachers and education depar tment officials believe they create the oppor tunity to enrich learning environments, suppor t the implementation of new curriculum, tackle environmental issues, and form par tnerships with physical and knowledge resources.

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Tel: +27 (0) 33 330 3931 |

NON GOVERNMENT ORGANISATIONS

Email: ecoschools@wessa.co.za | Website: www.wessa.org.za

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P earson E ducation

The HCET was established in 1989 to respond to the needs of farm communities in the Hantam district of Colesberg. The Trust has developed into a holistic rural development project. The activities of the Trust encompass six main components: a school (from Pre-school and Grade R to Grade 9), teacher development programme, skills training programme (for youth and adults), bursary programme and a primary health clinic and pharmacy. The Trust services 22 farms in a radius of 50 Km, providing quality education, training, development and health care services.

Maskew Miller Longman - Pearson Southern Africa is an education company that develops, produces and distributes teaching and learning materials to support the implementation of curriculum policies in 11 Southern African countries, including South Africa.

H ow does the H antam Community E ducation Trust make a difference in education ? The Hantam Comunity Education Trust has been providing an excellent learning environment for rural children in the Hantam area for the past 20 years. We offer teacher training and monitor the Trust teachers on an ongoing basis to ensure that both quality teaching and learning takes place. We also implement effective interventions such as the basic concept programme (four year pilot programme in foundation phase education) and the picturing writing programme in the intermediate phase of education.

What are the challenges the Hantam C ommunity Education T rust is currently facing ? The greatest challenge facing the Hantam Community Education Trust is pervasive language difficulties experienced by learners at the HCET School. The school was concerned that learners were not able to cope with English as the language of instruction from Grade 4 onwards. The home language of a majority of learners at the school was Xhosa and Afrikaans, while a minority of learners spoke English at home. The pupils are not exposed to any English outside of the classroom in the Colesberg area.

H ow can these challenges BE overcome ? The project was premised on the belief that language prerequisites are essential for learning. Learning of language (with an emphasis on the conceptual language required for formal learning) was emphasized during the project and was simultaneously linked with the learning areas at the school. The progress of learners is therefore attributed not only to structured and effective teaching-learning interventions, but also to the systematic development of the language of these learners. Language is regarded as the central mechanism used to direct the teaching-learning process, where words are used to develop meaning and consequently provide a stimulus for the advancement of thinking and learning.

Why is the H antam C ommunity Education Trust so successful ? The beneficiaries of the Trust are mainly farm workers and their children. Prior to the establishment of the Trust, the community had no access to schooling, training, youth development, primary health care and study bursaries. The Hantam Community Education Trust breaks the language barrier and brings education to rural communities. The Trust not only provides programmes but training and suppor t to both teachers and learners from all ages.

For us, education policy is both an educational imperative and a business oppor tunity. Our business is to ‘interpret’ curriculum guidelines and to ‘translate’ them into products that facilitate teaching and learning activities in classrooms that develop the required knowledge, skills, attitudes and values in our citizens and future employees. For us, it is essential business practice to be familiar with policy guidelines, and to have employees who are capable of translating them into ‘policy compliant’ products. The following are 5 key dimensions of our engagement with policy that contribute towards our business success:

1 . Be informed about education Policies: To ensure that the company is properly positioned to do good business, it recruits employees who bring relevant policy knowledge and experience into the company, prioritizes familiarity with policy as a key performance area in job descriptions. It also monitors key performance areas through performance management and product quality assurance processes.

2 . Engage in policy formulation processes: The company prioritizes employee par ticipation in policy formulation and implementation processes. For example, the company CEO has, over several years, played an active role as consultant to several development and implementation committees and was also appointed by the South African Minister of Education to chair a commission of enquiry into the state readiness of secondary schools to implement new policies as well as vocational colleges in delivering the Recapitalisation Project to implement a new policy.

3 . Supporting policy implementation: As already mentioned, the company’s core business is to develop educational products and solutions that are aligned with curriculum policy and deliver the curriculum into classrooms. These include: textbooks, teachers’ guides and other LTSMs that ‘interpret’ and ‘translate’ curriculum guidelines into concrete teaching, learning and assessment content, methods and activities.

4 . Research and supporting policy implementation The company’s shareholders fund, the Maskew Miller Longman Foundation, a non-profit Educational Trust. The Foundation’s primary function is to suppor t policy implementation, in par tnership with Education Depar tments and schools, through research and school development initiatives aimed at developing models of best practice. It is currently running as two projects i.e. the Research and Develop Best Practice in Primary Schools project (aims to develop programmes that promote best practices to improve learner performance in school) and the Schools Development project (bridging the gap between policy implementation and everyday school practices).

5 . Contributing towards policy formulation and product revision These two research and development projects contribute towards the Foundation’s understanding of educational realities in schools and its ability to suppor t implementation by developing and advocating models of best practice, inform policy debates and allow educational businesses to develop appropriate educational products as well as improve their existing products.

THE HANTAM COMMUNITY EDUCATION TRUST

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Tel: +27 (0) 51 753 1419 |

Email: hantam.trust@mweb.co.za | Website: www.hantam-trust.org.za

PEARSON EDUCATION EDUCATION HANDBOOK

EDUCATION HANDBOOK

Tel: +27 (0) 21 532 6000 | Email: david.langhan@mmlfoundation.co.za

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J E T EDUC ATION SERVICES

T H E M AT H S C E N T R E

JET Education Services is an NGO with over 15 years of experience in the field of education. It has had exposure first as a grant-making institution and in later years as a research and development institution in the field of education.

Maths Centre began its life as a small outreach project from Auckland Park School (1985-1995.) Some of the facilities of the school were extended to Soweto educators. In the 80’s and early 90’s, several facilitators travelled to Soweto, guiding and supporting educators in the fields of computers and investigative mathematics. The Maths Centre has 9 Provincial Centres, run by locally recruited staff who works on provincial projects in Maths, Science, Technology, Entrepreneurship Education and ECD.

H ow does J ET E ducation Services make a difference in education ? We use the findings of our research and evaluation studies to influence policy and practices to improve the quality of schooling in South Africa, par ticularly of the disadvantaged communities.

What challenges does JET E ducation currently face? The challenges facing education are the inadequate qualities and quantities of educational outcomes from 80% of over 26 000 schools. The high schools are producing inadequate numbers of university-entry passes, specifically those that took mathematics and science subjects; primary schools’ performance in numeracy and languages are hovering at 26% and 40% respectively. Even worse, the teacher content knowledge and levels of professionalism and parent (and community) input in schools also prove to be quite low or non-existent. The latter set of issues is the fundamental cause of the educational underperformances and should be addressed if we are to ensure sustained high and good quality outputs from schools.

H ow can these challenges be overcome ? The challenges require that we adopt systemic approaches that seek to remedy the organisational malfunctions comprehensively and coherently. Government needs to ensure labour peace, well staffed districts with the capacity to suppor t and monitor schools. Effective managers should be engaged in each school to make sure that the utilisation of personnel and non-personnel resources is properly planned for and utilised optimally. Schools must be operational for the prescribed learning time, teachers must teach for most of the time, learners must read and do ever more challenging exercises and the households must suppor t the learners. The solution to the education challenges are in improving service delivery and reengineering the perceptions about education. There are no quick fixes.

What makes JET E ducation Services so successful ? What works in turning schools around is to make sure that schools know how well or not they are doing, plan for improvement, receive appropriate suppor t and set clear targets and repor t these. It is the role of districts to ensure that the schools run this improvement cycle every year. Following evidence-based decision making approaches will enable the schools, districts and communities to identify the weak points in the school system and enable stakeholders to work towards solutions.

What is the missing link between policies and practice? The South African education policies are well-meaning and comprehensive. However, they are not effectively implemented, largely because of the weak districts. There is still no national district model that will ensure that this crucial level of the education system is properly staffed, resourced and mandated to monitor and suppor t schools. Large education systems such as ours require effective district offices. Indeed, the responsibility of ensuring that schools are effective centres of learning and teaching should be decentralised to districts and the province and national depar tment level should focus on monitoring. We should learn from the South African Policy Service depar tment which has recently moved its big brains from its headquar ters to the police stations, where their services are most needed.

JET EDUCATION SERVICES

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Tel: +27 (0) 11 403 6401

Email: info@jet.org.za

How does the M aths C entre make a difference in education? Maths Centre offers in-service teacher development in most of the provinces in South Africa. They focus on Maths, Science and Technology aimed at enhancing teacher qualifications, competencies and professionalism in mathematics and related curriculum areas, enhancing learner performance through a systematic monitoring of learner progression and producing high quality, effective and efficient teaching and learning materials for Grades R-12. Maths Centre has Dynamic solutions for correcting, restoring and advancing Maths, Science, Technology Teacher and Learner performance in South Africa. All programmes are Teacher and Learner based though we do run courses for Parents, SGBs and Provincial officers working for the depar tments of education. In addition to its Maths, Science and Technology Focus, Maths Centre is preparing 26000 in-school young people from Grades 8-11 in 6 provinces to run their own business. This builds confidence, facilitates informed career decisions and provides school leavers with an alternative career path.

What are the current challenges the Maths Centre is facing? Some of the challenges the Maths Centre are currently facing is lack of funding, poor work ethic, poor desire for self improvement, national focus and strategy, accountability and responsibility measures, lack of respect for such a powerful, universal and foundation discipline, school policies and lack of qualifications amongst teachers.

How can these challenges be overcome? Bigger national challenges can only be addressed with a very clear, detailed, par ticipatory, consultative strategy and through the deployment of advanced skills teachers by enrolling practicing teachers who left the system, teacher buddies, advisory teachers, mentoring systems, regular clusters or forums, graduate training programmes and university volunteers.

Why is the Maths Centre so successful ? The national framework for teacher development identified the need for empowerment of educators with regard to their content knowledge. Within the scope of this framework, there is a need for the development of an intensive programme that focuses on content training for educators specifically from the under-performing schools and for subjects where there is a scarcity of qualified teachers. This is what the Maths centre strives to do and have been doing successfully for the past two decades.

I n your opinion , what is the missing link between policies and practice? Take a look at the National Strategy for Learner Attainment. If this was put into practice with very rigorous monitoring measures, progress will become visible within a shor t space of time.

THE MATHS CENTRE | Website: www.jet.org.za

EDUCATION HANDBOOK

Tel: +27 (0) 11 276 8200

NON GOVERNMENT ORGANISATIONS

Email: webmaster@mcpt.org | Website: www.mcpt.org

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T HE WESTERN C APE PRIM A RY S C I E N C E P RO G R A M M E ( P S P )

S C H O O LT R A D E

The Western Cape Primary Science Programme (PSP) has been operating since 1985. We are a teacher in-service education organization that aims to improve the quality of teaching and learning in the most under resourced, disadvantaged primary schools in the Cape Town and Boland areas. We develop teachers’ knowledge and skills and support them in their work with learners. The PSP has built up excellent relationships with a core of 200 primary schools from all the Cape Town township areas and the Boland and West Coast rural areas. Most of the schools in the latter areas are farm schools.

SchoolTrade is an `Adopt a School’ programme that has been active since 2003. We aim at making a tangible difference in the quality of teaching and learning in townships and rural schools in the greater Pietermaritzburg region. We also try to ensure that local businesses derive substantial benefit from its support of local education through School trade.

H ow does the Primary Science Programme make a difference in education ?

SchoolTrade volunteers time through Vanessa and donates resources and funds to the Tabitha pre-school in Mayor’s Walk. Our suppor t has helped to transform the school into a vibrant educational center where orphaned and HIV + children are receiving a quality foundation phase education. The pre-school under takes regular outings to places of interest in and around Pietermaritzburg. It also has plans to develop a psychomotor centre.

We focus on the critical learning areas of the Natural Sciences (including Environmental Education), Language, Mathematics and the Social Sciences. The PSP offers a variety of courses; develops learning experiences together with teachers and offers suppor t in their classes. Based on this interaction with teachers, the PSP produces innovative materials, including teacher resource books, learner task cards and display material. All our materials are written in easily accessible language; include careful concept progression; many activities and investigations, and include good suggestions for assessment. Our data base shows that since 2003 we have worked with over 7357 teachers from 1241 primary schools, reaching more than 367 000 learners. The PSP works in an environment where most teachers and learners have to operate in a second language. We therefore also work on developing learners communication skills while focusing on science and the environment.

What challenges is the Primary Science Programme currently facing? The challenges currently faced by the programme include over crowded classes with large learner numbers, learners being taught in languages other than their mother tongue, lack of text books and teaching materials in isiXhosa and Afrikaans, teachers spending more time on administrative duties than actual teaching, lack of qualified teachers and poor quality education. Other socio/economic factors such as pover ty, alcoholism, violence, etc. also play a role in our level and quality of education.

How does Schooltrade make a difference in education?

What challenges is Schooltrade currently facing? One of our greatest challenges is that of effectively marketing the good work that we do. While we make good use of word of mouth and other networking methods there is a place also for traditional strategies like print and media. Our request would therefore be to help us to market ourselves.

How can these challenges be overcome? These challenges can be overcome by sponsoring a SchoolTrade radio ad aimed at businesses looking for BEE investments, the production of a 5 min promotional DVD or purchasing weekly or monthly adver tising space in a local newspaper that enables SchoolTrade to showcase its achievements or recognize its teachers. An example would be a `teacher of the month’ column with the sponsor’s logo. The column could reflect the teachers face as well as a brief description of the exemplary action.

Why is Schooltrade so successful ?

H ow can these challenges be overcome ? Through in service training and suppor t of teachers in their classrooms, through government service delivery in terms of the socio/ economic problems and approaching education in an integrated, holistic, developmental manner these issues can be addressed and resolved.

Why is the Primary Science Programme so successful ? Our approach of in service training in cooperation with par tners such as the Western Cape Education Depar tment and donors, is working as we provide projects which mostly, run over a 3 year period. In one of our projects, The Innovation project, the courses are planned on an annual basis, with the teachers and we hence have buy in and commitment from them. Our training approach is one of active par ticipation by the teachers rather than lecturing and we include a component of monitoring and evaluation in our courses.

SchoolTrade draws inspiration from a great truth: ` It takes a village to raise a child’. Our projects covers four main areas: Getting donated resources into needy schools (Swap Shop), Teacher Training, Connecting and Enterprise Development. Our most successful example of Connecting has been the SchoolTrade Imbizo offered for the first time in 2008. The Imbizo offered a ver y useful platform for 8 township schools to adver tise their most pressing need and for the local business community to be informed of that need. The generous contributors were: Willowton Oil; Venetian Blinds; Stanley Bostitch Alan Brothers; Clifford Welding Systems; Shuter and Shooters; Farouk Mullah & Associates; Christies Heating and Cooling; Denzil Lakay; Scotties Plant Hire; The Wykeham Collegiate School; St Nicholas Dioceses School.

In your opinion, what is the missing link between policy and practice? School management and governing systems are sometimes weak and/or under developed and don’t provide teachers with the suppor t they need. The policy decisions are often not followed through with practical training necessary to implement them in all schools. This was par ticularly true with the introduction of the new curriculum.

THE WESTERN CAPE PRIMARY SCIENCE PROGRAMME (PSP)

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Tel: +27 (0) 21 691 9039

Email: info@psp.org.za

| Website: www.psp.org.za

SCHOOLTRADE EDUCATION HANDBOOK

EDUCATION HANDBOOK

Tel: +27 (0) 33 386 8885 |

NON GOVERNMENT ORGANISATIONS

Email: colinm@schooltrade.co.za | Website: www.schooltrade.co.za

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Handbook, www.teacher.org.za is a new online platform with up-to-date information about the key repor ts, issues and initiatives covered in this publication.

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GENERAL WEBSITES

G ENERAL WEBSITES

Umalusi | www.umalasi.org.za

Education Directory | www.sabest.co.za/directory_education.html Covers the following headings: General, Universities, Technikons, Colleges, Other, Student Information, Encyclopedias’ etc, e-Education, Team Building/Motivation, Shor t Courses. Resources on South A frican H igher E ducation | www.africa.msu.edu/SAHE/ This website is designed to suppor t higher education in South Africa and people working to transform it. There are links here to most South African universities, technikons, and higher education consor tia, as well as numerous research and policy documents.

Department of Education website | www.education.gov.za Global C ampaign for Education South A frica | www.campaignforeducation.org/en/south-africa The Global Campaign for Education (GCE) is a civil society movement that aims to end the global education crisis. Together we hold governments to account for their promises repeatedly made to provide Education for All. The GCE’s mission is to make sure that governments act now to deliver the right of every girl, boy, woman and man to a free quality public education. Education International | www.ei-ie.org

Umalusi is a statutory organization which sets and monitors standards for general and fur ther education and training in South Africa with the purpose of continually enhancing the quality of education and training. They have five key functions: 1) Evaluating qualifications and curricula to ensure that they are of the expected standard, 2) Moderating assessment to ensure that it is fair, valid and reliable, 3) Conducting research to ensure educational quality, 4) Accrediting educational and assessment providers, 5) Cer tifying learner attainments.

South African Qualifications Association (SAQA) | www.saqa.org.za The South African Qualifications Authority is a body of 29 members appointed by the Ministers of Education and Labour. The functions of the Authority are essentially twofold: 1) To oversee the development of the NQF, by formulating and publishing policies and criteria for the registration of bodies responsible for establishing education and training standards or qualifications; 2) To oversee the implementation of the NQF by ensuring the registration, accreditation and assignment of functions to the bodies, as well as the registration of national standards and qualifications on the framework. It must also take steps to ensure that provisions for accreditation are complied with and where appropriate, that registered standards and qualifications are internationally comparable. Federation of G overning B odies of South African S chools (FEDSAS) | www.fedsas.org.za FEDSAS is the national representative organisation for governing bodies, which informs, organises, mobilises and develops them to achieve and uphold the highest recognized international educational standards.The vision of FEDSAS is the maintenance and promotion of education quality in schools in South Africa. Subject to the reservation of the autonomy of its members, the mission of the Federation is to co-operate, negotiate and engage with the relevant authorities at all levels of education provision and decision-making, as well as with other par tners and stakeholders in education.

Education International represents nearly 30 million teachers and education workers. Our 401 member organisations operate in 172 countries and territories, from pre-school to university. As the world’s largest Global Union Federation, and the only one representing education workers in every corner of the globe. Education International is the voice for the education sector world-wide.

Centre for Education Policy D evelopment (CEPD) | www.cepd.org.za

Education Africa | www.educationafrica.com Education Africa, an association not for gain, was established in 1992 with the objective of addressing two of the most critical educational issues facing South Africa’s marginalised communities: accessibility to quality education and relevance of education.

National Student Financial A id Scheme of South A frica (NSFAS) | www.nsfas.org.za

South African REFLECT Network | www.sareflect.org South Africa Reflect Network (SARN) is represented by par ticipants, practitioners, organisations, and adult education and development activists across South Africa who are either using Reflect or advocate for it as an accepted and preferred means to contribute to the realisation of rights of the poor.

CEPD is a professionally autonomous Centre established in 1993 on the initiative of the mass democratic movement in order to star t developing education policy for a democratic South Africa.

The National Student Financial Aid Scheme of South Africa (NSFAS) seeks to impact on South Africa`s historically skewed student, diplomate and graduate populations by providing a sustainable financial aid system that enables academically deserving and financially needy students to meet their own and South Africa`s development needs.

South African Institute for D istance Education (SAIDE) | www.saide.org.za/frontend The South African Institute for Distance Education was formed as an educational trust in July 1992. Its explicit brief is to assist in the reconstruction of education and training in South Africa. It promotes open learning principles, the use of quality distance education methods and the appropriate use of technology. SAIDE works closely with policy makers and providers of educational programmes to translate these approaches into practice.

South African Agency for Science and Technology Advancement (SAASTA) | www.saasta.ca SAASTA is an agency of the National Research Foundation (NRF). The mandate is to advance public awareness, appreciation and engagement of science, engineering and technology in South Africa.

SA History online | www.sahistory.org.za Rewriting history, critically examining our past and strengthening the teaching of history.

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WEBSITES FOR TEACHERS WEBSITES FOR LEARNERS

W EBSITES FOR TEACHERS

WEBSITES FOR LEARNERS

Teacher.org.za | www.teacher.org.za Teacher.org.za is an online platform where key stakeholders in the Education Arena can connect, collaborate and par ticipate to make a discernable difference to the future of our children.

SAstudy.co.za | www.sastudy.co.za SAstudy.co.za is South Africa’s most comprehensive database of all under-graduate qualifications. In addition to a dynamic Courses Search Tool, it also offers prospective students an overview of institutions and provides them with vital information on how to make the right choices to get the most out of their student years.

Drawing from research and development work that was used for the Education Handbook, www.teacher.org.za will provide an up-to date overview of the key issues and initiatives that influence education in South Africa. Featuring a real-time blog and regular updates, it is set to become the leading source of education-related information in the country. Most impor tantly, it will provide key role-players with a dynamic oppor tunity to pro-actively get involved, share ideas and identify solutions.

South African Democratic Teachers U nion (SADTU) | www.sadtu.org.za SADTU was founded in 1990 following successful teacher unity talks to establish a national unitary non-racial and non-sexist union of educators. Today the union’s membership stands at 230,000 representing nearly two-thirds of South Africa’s educators. SADTU is the largest union in the public service and the second largest union in the country. South African Council for Educators (SACE) | www.sace.org.za The South African Council for Educators aims to enhance the status of the teaching profession, and to promote the development of educators and their professional conduct.

National Professional Teachers Organisation of South Africa (NAPTOSA) | www.naptosa.org.za NAPTOSA was registered by the Registrar of Labour Relations as a Trade Union on 1 November 2006. Fur thermore, with in excess of 43,000 State employed members and a fur ther 6,000 School Governing Body, College Council and Independent School members, making a total of almost 50,000 members, we are by far the second largest union in the education sector. We enjoy all the rights of a trade union in this sector and operate in the ELRC under the name of the combined trade unions (CTU), called CTU “SAOU”. Please note that this name does not afford the SAOU or any of the other unions in the Alliance (which includes NAPTOSA, NATU, SAOU and PEU) any proprietary or pre-eminent rights or position. This was a name chosen last year to comply with the constitution of the ELRC since at that time it was not possible to use the name of the federation NAPTOSA.

C ape Teacher’ P rofessional Association | www.cpta.org.za The Cape Teachers’ Professional Association was established in 1967 and the official launch took place in Athlone, South Africa from 29 30 June 1967. Mr DR Ulster was the first duly elected president of the CTPA. The CTPA is the oldest progressive teachers’ union in South Africa. The CTPA was also instrumental in assisting the process of transformation in a Democratic South Africa.

Hip to be Square | www.hip2b2.com We want to inspire you – to make you dream big. To realise that you can do amazing things, using the vehicles of Maths, Science, Technology and Entrepreneurship. We want to spark your interest, and then provide you with the means to explore further. To show you how people from different countries and cultures have achieved the impossible through imagination, inspiration and determination. But it’s not only about us. It’s about you. So this site is very much your space – send us your stories, post comments, chat on the forum, share your thoughts.

Jozi Kids | www.jozikids.co.za Jozikids was created to help make all our lives easier, to showcase the myriad of family friendly, child-oriented services, products, event planning and activities in the biggest shopping centre imaginable, the internet, with its unlimited space and possibilities. It’s the solution for frustrated moms, dads, teachers, caregivers or visitors who never know where to look to find what they need. Use it to check out what’s new, what’s happening and what to do in the whole of Gauteng, from Johannesburg to Pretoria , the East Rand to the West Rand.

IXL | www.ixl.com/math Wonderful site for maths practice with more than 1000 math topics from kindergarden through to 5th grade.

Xtralessons | www.xtralessons.co.za One-on-One tuition in your home for all school grades and subjects.

Multi Sensory M aths | www.numicon.com

Community Learning Network | www.cln.org A site designed to help K-12 teachers integrate technology into the classroom. Here you’ll find over 5,800 annotated links to educational sites with free resources, all organized by theme pages and keyword search. Find technology resources under Teachers & Tech. You’ll also find links to online teacher development (Pro-D) and online K-12 courses.

A maths programme from the UK to transform math teaching.

NNA Publishers | www.nna.co.za Buy “Maths is fun” Online. Available for Grades 3-7 with free Delivery in South Africa. Computational M aths MSc | www.brunl.ac.uk/MscMathematics Thorough Theoretical Analysis with Cutting Edge Computer Resources Math Kids Online | www.mathkidsonline.com Be Smar ter and Faster with Maths.

Penguin Tutoring Co (SA) | www.penguintutoring.co.za One-on-one extra lessons at home. All school subjects available. InT uition T utors | www.intuitiontutors.co.za Professional Mathematics tutors in Cape Town.

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G ENERAL C ONTACT DETAILS Adult Learning Network (ALN) Tel: 021 447 4828/ 4898 Email: aln-national@africa.com Website: www.aldsa.org African Leadership Academy Tel: 084 241 1196 Email: Fswaniker@ala.org Website: www.thear therapy.co.za Argo Tel: 021 865 2813 Fax: 021 865 2166 Email: info@argo.org.za Website: www.argo.org.za Art Therapy Centre Tel: 011 447 2833 Email: info@thear ttherapy.co.za Website: www.thear ttherapy.co.za Catholic Institute of Education (CIE) Tel: 011 433 1888 Email: info@cie.org.za Website: www.cie.org.za Centre for Applied Legal Studies (CALS) Tel: 011 717 8600 Email: timolt@law.wits.ac.za Website: www.law.wits.ac.za Centre for Augmentative and Alternative Communication (CAAC) Tel: 012 420 2001 Email: liza@up.ac.za Website: www.childlawsa.com Centre for Child Law - University of Pretoria Tel: 012 420 4502 Email: childlaw@postino.up.ac.za Website: www.childlawsa.com

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Home Language Project Tel: 011 646 3070 Website: www.hlp.org.za

Centre for Early Childhood Development (CECD) Tel: 021 683 2420/1 Email: cecd@iafrica.co Website: www.cecd.org.za

E-School Network (ESN) Tel: 021 683 8719/ 9140 Email: jenny@esn.org.za Website: www.esn.org.za

Department of Education Tel: 0800 202 933 Website: www.education.gov.za

Fairest Cape Association Tel: 021 462 2040 Email: info@fairestcape.org.za Website: www.fairestcape.org.za

Department of Science and Technology E-mail: nhlanhla.nyide@dst.gov.za Website: www.dst.gov.za

Free State Education Department Tel: 051 404 8104/5/80000 62 66 Email: magalefasr@edu.fs.gov.za Website: www.fsdoe.fs.gov.za

Diabetes South Africa Tel: 011 792 9888 Email: national@deabetessa.co.za Website: www.duabatessa.co.za

Funza Lushaka Tel: 012 312 5222 Email: tyobekap@doe.gov.za Website: www.education.gov.za

Eastern Cape Education Department Tel: 040 608 4200/4797 Email: loyisop@yahoo.com Website: www.ecprov.gov.za/ education

Gauteng Education Department Tel: 011 355 0000/0600 Website: www.education.gpg.gov.za

Earthlife South Africa (Gauteng) Tel: 011 720 3773 Email: zini@house.org.za Website: www.ear thlife.org.za

Gauteng Shared Services Centre (GSSC) Tel: 0860 428 8364 Website: www.gssc.gpg.gov.za

Education International (EI) Email: info@ei.org.za Website: www.ei-ie.org

Global Mobile Marketing Services (GMMS) Tel: 082 239 5600 Email: info@gmms.za.com Website: www.gmms.za.com

Education Labour Relations Council (ELRC) Tel: 012 663 0432 Email: gen.sec@elrc.co.za Website: www.elrc.co.za

Government Employee Medical Scheme (GEMS) Tel: 08600 4367/083 450 4367 Email: enguiries@gems.gov.za Website: www.gems.gov.za

Education Rights Project (ERP) Tel: 011 717 3076 Email: salim.vally@wits.ac.za Website: www.erp.org.za

Heart and Stroke foundation of South Africa Tel: 0860 22 32 22 Email: hear t@hear tfoundation.co.za Website: www.hear tfoundation.co.za

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Human Rights Commission (HRC) Tel: 011 484 8300 Email: mmoletsane@sahrc.org.za Website: www.sahrc.org.za Intelesi Consulting (Multigrade Teaching) Tel: 011 483 6201 Email: Arlene@intelesi.co.za International Paint Pals Email: linden@paintpals.org Website: www.paintpals.org Iziko Museum Heritage Tel: 021 481 3813 Email: info@iziko.org.za Website: www.iziko.org.za Joint Education Trust (JET) Tel: 011 403 6401 Email: info@jet.org.za Website: www.jet.org.za / www.jyt.co.za KwaZulu-Natal Education Department Tel: 033 355 2453/0800 204 3535 Email: Christi.naude@kzndoe.gov.za Website: www.kzneducation.gov.za Learningthings Africa Tel: 011 719 4100 Email: susan@learnthings.co.za Website: www.learnthigs.co.za Limpopo Education Department Tel: 015 290 9301 Email: MangalaN@edu.rorprov.gov.za Website: www.limpopo.gov.za/education Mpumalanga Education Department Tel: 013 766 5315/0800 203 116 Email: H.ngwenya@edu.mpu.gov.za Website: www.mpumalanga.gov.za/education Museum Africa Tel: 011 833 5624 Email: museumafrica@joburg.org.za Website: www.museums.org.za

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Music is a Great Investment (MIAGI) Tel: 012 320 5154 Email: info@miagi.co.za Website: www.miagi.co.za National Professional Teachers’ Organisation of SA (NAPTOSA) Tel: 012 324 1365 Email: daveb@maptosa.org.za Website: www.naptosa.org.za

Phaphama Initiatives Resources Centre (conflict management) Tel: 011 487 1798 E-mail: info@phaphama.org.za Website: www.phaphama.org.za Planned Parenthood Association of South Africa Tel: 011 523 1400 E-mail: mar tham@ppasa.org.za Website: www.ppasa.org.za

National Children’s Theatre Tel: 011 484 1584/5 Email: admin@jyt.co.za Website: www.jyt.co.za

Play 2 Think (Literacy Skipping Ropes) Tel: 011 914 1559 E-mail: play2think@telkomsanet Website: www.play2think.org

National Student Financial Aid Scheme (NSFAS) Tel: 0800 202 933/012 312 5911 Email: Ngqengelele.L@doe.gov.za Website: www.education.gov.za National Teachers’ Trade Union (NATU) Tel: 035 772 1608 Website: www.natu.co.za North West Education Department Tel: 018 381 2016/7 Email: Craseala@nwpg.gov.za Website: www.nwpg.gov.za Northern Cape Education Department Tel: 053 839 6701 Email: Imotsage@per.ncape.gov.za Website: nor thern-cape.gob.za/education Opening Learning Systems Education Trust (OLSET) Tel: 011 339 5491/7 E-mail: van@mail.ngo.za Website: www.olset.org.za Origins Centre Tel: 011 717 4700 Website: www.originscentre.co.za Pan South African Language Board (PANSALB) Tel: 012 341 9651 E-mail: communication@pansalb.org.za Website: www.pansalb.org.za

Project Literacy Tel: 012 323 3447 E-mail: info@projectliteracy.org.za Website: www.projectliteracy.org.za READ Educational Trust Tel: (011) 496 3322 E-mail: info@read.co.za Website: www.read.co.za Resources Aimed at the Prevention of Child Abuse and Neglect (RAPCAN) Tel: 012 712 2330 E-mail: info@rapcan.org.za Website: www.rapcan.org.za Robben Island Young Learners Academy Tel: 021 409 5123/5104 E-mail: sandrad@robben-island.org.za Website: www.robben-island.org.za Schoolnet Tel: 011 403 5777 E-mail: info@schoolnet.org.za website: www.schoolnet.org.za Sci-Bono Discovery Centre Tel: 011 639 8400 E-mail: info@sci-bono.co.za Website: www.scibono.co.za

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South African Agency for Science and Technology Advancement (SAASTA) Tel: 012 392 9300 E-mail: info@saasta.ac.za Website: www.saasta.ac.za South African Congress of Early Childhood Development (SACED) Tel: 012 322 0601/2 E-mail: saced@satis.co.za Website: www.saced.co.za South African Council for Educators (SACE) Tel: 011 663 9517 E-mail: info@sace.org.za Website: www.sace.org.za South African Democratic Teachers’ Union (SADTU) Tel: 011 334 4830/4836 E-mail: jlewis@sadtu.org.za Website: www.sadtu.org.za South African Golf Development Board (SAGDB) Tel: 021 852 8056 E-mail: info@sagolfboard.org.za Website: www.sagolfboard.org.za South African History Archive (SAHA) Tel: 011 717 1964 E-mail: sahas@library.wits.ac.za Website: www.saha.org.za South African Institute of Chartered Accountants (SAICA) Tel: 0861 072 422 E-mail: saica@saica.co.za Website: www.saica.co.za South African Institute of Distance Education (SAIDE) Tel: 011 403 2813 E-mail: info@saide.org.za Website: www.saide.org.za

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South African Principals’ Association (SAPA) Tel: 012 240 2769 E-mail: sapa@up.ca.za Website: www.sapaonline.co.za South African Women in Science and Engineering (SAWISE) E-mail: sawise@botzoo.uct.ac.za Website: www.sawise.org.za Suid Afrikaanse Onderwysersunie (SAOU) Tel: 012 348 9641 E-mail: saou@mweb.co.za Website: www.saou.co.za Swimming South Africa (SSA) Tel: 011 404 2480 Website: www.swimsa.co.za The Publisher’s Association of South Africa (PASA) Tel: 021 425 2721 E-mail: pasa@publishsa.co.za Website: www.publishsa.co.za Thutong Portal Tel: 012 312 5911/0800 202 9610 E-mail: info@thutong.org.za Website: www.education.gov.za Visual Arts Network (VAN) Tel: 073 080 9610 E-mail: info@vansa.co.za Website: www.education.gov.za Western Cape Education Department Tel: 021 467 2000 E-mail: pattwell@pgwc.gov.za Website: www.capegateway.gov.za/education Youth in Science Strategy (YISS) Tel: 021 843 6300 E-mail: info@sci-bono.co.za Website: www.sci-bono.co.zaWebsite: www.hear tfoundation.co.za

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1. African Union (2007), “Strategy to Revitalize Technical and Vocational Education and Training (TVET) in Africa: Final Draft”, Meeting of the Bureau of the Conference of Ministers of Education of the African Union (COMEDAF II+), Addis Ababa Ethiopia, 29-31 May.

21. Depar tment of Education (2003d), Review of the Financing, Resourcing and Costs of Education in Public Schools, 3 March, Depar tment of Education, Pretoria.

2. Badat, S. (2004), “Transforming South African Higher Education 1990- 2003: Goals, Policy Initiatives and Critical Challenges and Issues”, in N. Cloete, et al. (eds.), National Policy & Regional Response in South African Higher Education, James Curry, Oxford and David Philip, Cape Town.

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40. Depar tment of Education (2007d), “Statement by Naledi Pandor MP, Miniter of Education, on the release of the 2007 senior cer tificate examination results, Sol Plaatje, Pretoria”, 28 December, http://wced.wcape.gov.za/home/service/pandor_results2007.html, accessed 24 June 2008.

19. Depar tment of Education (2003a), Draft White Paper on e-Education - Transforming Learning and Teaching through ICT, August, Depar tment of Education Pretoria.

41. Depar tment of Education (2007e), Supplementary 2007 National budgetary data, provided directly to authors by the Depar tment of Education, 1 September, Depar tment of Education, Pretoria.

20. Depar tment of Education (2003c), Plan of Action: Improving Access to Free and Quality Basic Education for All, 14 June, Depar tment of Education, Pretoria.

42. Depar tment of Education (2008), Education Statistics in South Africa 2006, Depar tment of Education, Pretoria, www.education.gov.za/emis/emisweb/statistics.htm.

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62. Monson, J., et al., (eds.) (2006), South African Child Gauge 2006, Children’s Institute, University of Cape Town. 63. Motala, S., et al., (2007), Educational Access in South Africa, CREATE, Centre for International Education, University of Sussex, Brighton. 64. National Treasury (2007), “Education”, in Provincial Budgets and Expenditure Review 2003/04 to 2009/10, National Treasury, Pretoria, www.treasury.gov.za/publications/igfr/2007/prov/default.aspx.

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70. Polity.org.za, National Budget Speech 2008 by South African Finance Minister Trevor Manual, 20 February 2008, http://www.polity.org. za/print-version/national-budget-speech-2008-by-south-african-finance-minister-trevor-manuel-20022008-2008-02-20. 71. Republic of South Africa (1996) “South African Schools Act 1996”, No. 84 of 1996, Government Gazette, No. 1867, 15 November, Pretoria. 72. Shisana, O., et al. (2005), The Health of Our Educators: A Focus on HIV/AIDS in South African Public Schools, Education Labour Relations Council/HSRC Press, Cape Town. 73. South African Qualifications Authority (2000), The National Qualifications Framework and Curriculum Development, May, South African Qualifications Authority, Pretoria. 74. South African Qualifications Authority (2007), OECD Activity on Recognition of Non-Formal and Informal Learning – Draft Country Background Repor t: South Africa, OECD, Paris, www.oecd.org/edu/recognition. 75. South African Qualifications Authority (2007), The National Qualifications Framework: An Overview, South African Qualifications Authority, Pretoria. 76. Statistics South Africa (2005), Census 2001 South Africa: Stages in the Life Cycles of South Africans, Statistics South Africa, Pretoria. 77. Statistics South Africa (2006), General Household Survey 2005, Statistical Release P0318, Statistics South Africa, Pretoria.

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59. McCallum, K. (2004), “If You Think Education is Expensive, Try Ignorance! What Does a Culture of Reading Cost?”, paper delivered at The Cost of a Culture of Reading, Cape Town, September. 60. Ministry of Education (2001), Draft National Plan for Higher Education in South Africa, February, www.education.gov.za/dynamic/dynamic.aspx?pageid=326&dirid=12, accessed 14 May 2007.

80. Statistics South Africa (2007), General Household Survey 2006, Statistical Release P0318, Statistics South Africa, Pretoria. 81. Statistics South Africa (2007a), Mid-year Population estimates, July, Statistical Release P0302, Statistics South Africa, Pretoria, www.statssa.gov.za/publications/P0302/P03022007.pdf , accessed on 18 April 2008. 82. University of KwaZulu-Natal (2005), “Future plans of newly qualified educators in South Africa”, in Depar tment of Education, Educators for the Future: Meeting Educator Shortages to Achieve Education for All, August, Depar tment of Education, Pretoria. 83. Van der Berg, S. (2001), “Resource Shifts in South African Schools after the Political Transition”, Development Southern Africa, Vol. 18, No. 4.

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