Articulation Policy: DHET, CHE, SAQA, QCTO progress reports

Meeting report

The Chairperson said all relevant entities have been invited to give a progress report on the articulation between TVETs and universities. He was particularly pleased with the idea of collaboration among these institutions on articulation.

Mr T Letsie (ANC) was concerned that the Minister was not present and asked if the Minister received the Committee meeting invitations. This was about the sixth meeting where the Minister is not attending a Portfolio Committee meeting when Members expected him to.

The Chairperson replied that correspondence to the Office of the Minister was frequent and it is safe to assume that he is aware of the Committee meetings taking place.

Department of Higher Education and Training (DHET) briefing
Mr Gwebinkundla Qonde, DHET Director-General, said that this was a critical matter which has come about through identification of the challenges in the system in accumulating programmes that will lead to a qualification. The articulation process was undertaken to develop the PSET system which culminated in 2017. The main purpose was to ensure there was an alignment of qualifications in the entire system. This is a strategic overarching policy developed by the Quality Councils (see document for detailed presentation).

South African Qualifications Authority (SAQA) briefing
Dr Vuyelwa Toni-Penxa, SAQA Chairperson introduced her team. Dr Julie Reddy, Acting SAQA CEO, took the Committee through the presentation. By 31 March 2021, the QCs must ensure that institutional policies include national entry and progression requirements, and post-qualification pathways, in line with SAQA and DHET policies. SAQA reviewed its 2014 Credit Accumulation and Transfer (CAT) Policy in 2020 to align it to the Articulation Policy. The CAT Policy will be published on 23 November 2020 for public comment. The reviewed policy will be gazetted in March 2021. SAQA has encouraged the QCs to align their policies to the revised national policies and SAQA made extensive inputs into the Quality Council for Trades and Occupation CAT revised policy in June 2020. The QCTO CAT Policy, when published, should be aligned to the SAQA revised CAT policy and the DHET Articulation Policy. SAQA will ensure that all new qualifications, and those submitted for re-registration, have statements about articulation (see document).
 
Dr Toni-Penxa concluded that the enthusiasm from all stakeholders on articulation showed the seriousness and commitment each has put into articulation. She was pleased with the collaboration of the stakeholders.

Quality Council of Trades and Occupations (QCTO) briefing
Mr Sam Zungu, QCTO Chairperson, introduced the Acting CEO, Mr Thomas Lata. He agreed with Ms Reddy on the systematic challenges needed for articulation within the system.  Inequality in the South African education and training system in general and the schooling system, post-schooling also, in particular on articulation is a serious concern. However, QCTO is busy developing its own articulation policy (see document). 
 
The Chairperson enquired about the absence of the QCTO CEO and Mr Zungu explained that he was undergoing a medical operation. The apology had been submitted to the Committee secretary but not conveyed timeously to the Chairperson. 

 
Council for Higher Education (CHE) briefing
Acting CEO, Dr Amani Saidi, took the Members through the presentation and indicated that admission to higher education through the TVET route was still very small- less than 3000 students for all 26 universities in 2018. If the figures were to be disaggregated by individual universities, the picture will be worse. Proportion admission through TVET total admission rose from 0.6% in 2014 to 1.4% in 2018. This is steadily increasing but the annual rate of increase is still less than 1%. He suggested some possible interventions, which were regulations and guidelines that would govern admission to Higher Education from the school system. He indicated that there are no incentives for Higher Education to enter into agreements in the sector, but there is also a lack of sanctions for those choosing not to (see document). 
           
Discussion
The Chairperson thanked the delegations for their practical ideas and inputs. He did not quite understand why there were no regulations on admission of students in TVET colleges. He wondered if this was intentional. This needs to be investigated in order to start creating policies that speak to the admissions of students in higher learning institutions.

QCTO and CHE had tried to simplify the information as articulation is very technical. At least Members were now fully aware of the issues in articulation.

Mr Qonde said that the question of low participation in TVETs and universities must also be looked at from a financial standpoint. The NSFAS policy is that the student is funded up to the attainment of the first qualification. Once this qualification has been attained through a TVET college, it becomes a challenge for the student to seek to attain a qualification through a university. This means that the funding provided by NSFAS must begin to take into consideration flexibility to fund students that wish to go further with their studies. 

Mr T Letsie (ANC) appreciated the information. Since the Sixth Administration, we should accord people doing good work what they deserve and lambast where work still needs to be done. It looks like DHET was doing well on this matter and he expressed his satisfaction with the work done by the rest of the stakeholders as well.

He appealed to DHET to expedite the process to halt the retrenchment of 71 employees earmarked to be retrenched from SAQA.

When a learner completes matric, they obtain NQF Level 4. However, when a learner then obtains an NC(V) certificate from a TVET college, it is NQF Level 2. This is not progression - it seems like regression. Is it possible for those doing NC(V) to be accredited for completing matric NQF Level 4?

What happens when a student or a learner is denied articulation – can the institution be held accountable for denying this? Many students complain about the lack of articulation. How can we ensure that articulation does not remain mere policy guidelines but is implemented across the higher learning institutions?

Ms J Mananiso (ANC) asked how the Committee is to ensure that the articulation policy will be implemented and how it will be monitored. What are the communication plans for the policy? There are people who become victims of not knowing this information.

What are the possibilities being given to institutions registered under SAQA in terms of NQF levels?

Mr S Ngcobo (IFP) appreciated the stakeholder briefings. He was concerned about matriculants with matric certificates that are NQF Level 4 studying at TVET colleges and exiting with a certificate lower than the matric certificate.

There are matriculants who attend foreign colleges here. The student studies in that college, spending three years and leaves with a diploma. However, this diploma is certified as NQF level 5. He understood that a diploma is NQF Level 6. When people enquire, they are told that there is still a conversion certificate.

There must be a way for this information to reach people who need it the most – both learners and parents in order to make proper choices. It seems there are quite a few choices, but the information is missing for the public – which should be user-friendly for students and parents.

The Chairperson said there was an appreciation of the work done on articulation by Members.

He asked when the Committee could expect finality on the work being done by the Working Group. That work has identified the gaps that exist. The CHE presentation identified ways in which these gaps can be attended to – there were a few scenarios and options. The possible introduction of regulations for the admission of TVET college students seems to be lacking. In addition, there are the financial challenges raised by the DG. This seems to be left to the discretion of the institutions and it is not regulated. We are trying to address a perception or reality that in the PSET hierarchy of institutions: universities sit at the top, then TVETs and CETs at the bottom. Therefore, it becomes prestigious for the student to go to a university to study.

Students that have studied at UCT, Stellenbosch, University of Pretoria, and Wits sit at the top of the hierarchy in consideration for employment.  Student that studied at previously disadvantaged institutions are at the bottom. This is the reality many students face.

The harsh reality is that TVET colleges will continue to remain the last resort for students. These discussions should assist in transitioning from this historical legacy and putting more effort on the TVET colleges – they must be given equal attention as the universities. Also, the student must have the knowledge that when they enter the TVET college, they can further their studies at a traditional university.

He asked for the timelines on finding the solutions so the stakeholders could be held accountable.

CHE response
Dr Saidi, Acting CEO, welcomed the remarks made by the Members. CHE has taken note of them and some are within the CHE mandate, while others fall within that of other stakeholders.

The Working Group is still at an early stage, but it has identified what the problem is and is identifying the barriers. The next stage is looking into what needs to be done. The ideas presented were still at an early stage, they need to be researched and concrete recommendations formulated which would be presented to the Committee to be taken forward. All the stakeholders have their own timetables and realistically, taking into consideration due process needing to be adhered to, this work would happen in the next financial year.

Considering the amount of work that still needs to be done, it would not be possible to conduct the required extensive research that will yield the concrete recommendations to take articulation forward. It will only be possible in the next financial year. This is a multi-stakeholder matter as it is a system-wide challenge and requires all stakeholders to cooperate and collaborate to develop solutions.

The institutional hierarchy is a perception but as the Chair has pointed out it is more than a perception and if that is not changed quickly enough, it becomes reality. CHE will encourage an ongoing dialogue amongst the different institutions, because it is from that dialogue where a message can be made to change that perception. TVET colleges should not be seen as inferior and it must be encouraged as institutions of choice and this message must be communicated in unison and in collaboration with all stakeholders. The amount of funding that has gone into the TVET sector should be acknowledged and we need to ensure that the funding yields the intended result.

QCTO response
Acting CEO, Mr Lata, replied that the funding of the Occupational qualifications is still a challenge. If the Minister when he determines the funding for TVET or CET programme qualification mix includes the QCTO qualifications this would be really appreciated by QCTO. The QCTO qualifications are not funded as the mainstream qualifications in the TVET colleges.

Occupational qualifications are scaffolded-type of qualifications – the exit level is NQF Level 4 but there is NQF Level 2 and 3 in the qualification itself. The Committee noted matric is NQF Level 4 but after TVET the learner exits with NQF Level 4 – but TVET Vocational is a different stream. The CAT policy needs to be implemented so that the learner is recognised and instead of entering at NQF Level 2, the learner enters at NQF Level 3. QCTO qualifications have those articulation possibilities. Most of the recognition of prior learning (RPL) at the national learner record database in SAQA is through our qualifications. Through the task team, we need the monitoring process strengthened so that when we return to the Committee we can give a response on the implementation of articulation. At the moment it is a theoretical type of implementation. For example, each of our qualifications which we register at SAQA has articulation possibilities. However, it is yet to be seen if this will be implemented – QCTO has not heard of a situation where a learner articulates from NQF Level 4 with an Occupational qualification into CHE.

Mr Zungu said QCTO is already implementing its RPL policy; it has an assessment policy, a CAT policy. It still has to finalise its own articulation policy but that should not be a hindrance as we implement the national articulation policy. When we implement and our qualifications are funded, QCTO will come back to the Committee with something that is tangible in terms of articulation.

Mr Zungu, QCTO Chairperson, replied on the funding of the educational programmes, there is some misalignment because the Programme and Qualification Mix (PQM) for TVETs for NC(V) and NATED but it goes beyond that to offer Occupational programmes but the challenge with that is that there is no guaranteed funding for such programmes. As a result, you find a lot of interest from the TVET colleges to look into those programmes – so there needs to be an engagement and alignment between SETAs and NSFAS or other form of funding. There must be a discussion around the funding of the Occupational programmes.

He welcomed the development of the qualifications in terms of the programmes meant to capacitate and develop TVET staff from a junior degree to a PhD level. We have seen such programmes in Switzerland and Germany and this is a great move.

On the learner with Grade 12 moving to NC(V) Level 2 - this needs to be clarified more by DHET.

SAQA response
Dr Reddy replied about the concern about going from a Level 4 down to a Level 2. One of the big issues that they are trying to address at a high level is on the parity of esteem of qualifications. NC(V) Level 4 is a school leaving certificate equivalent to the National Senior Certificate (NSC). The fact that the learner with a NSC must now go back to Level 2 is a structural problem that it is addressing.  

On learners being denied access to an articulated qualification and how to reduce such barriers and blockages, there needs to be an articulation ombuds. DHET will fulfil this function in the interim and students are welcome to raise this.

On the foreign colleges in the country, SAQA does not register institutions. The registration of private higher education institution is done by DHET and the accreditation is done by CHE. The SAQA website does have the registration of all South African national qualifications that are available on the National Learners Record Database which states who are the accredited providers. It also provides key information on the articulated and learning pathways and who offers those. The foreign colleges operating in country is vexing as one has a lot of fly-by-nights. Please check with SAQA if they are registered and accredited in their own country - if it not registered here it should be evaluated by SAQA and placed on the South African NQF. It does not mean their diploma will have the same status. It is really important to point out that NQF5 offers foundational programmes as an alternative access point to university if the matriculant did not gain sufficient NSC points.

SAQA is mandated in the NQF Act to advocate and disseminate information and to inform the public so they can make informed choices such as through webinars and infographics.

The SAQA Chair thanked the Committee for raising the looming retrenchments at SAQA.

The Chairperson replied to the SAQA Chair that the Committee had been assured by DHET yesterday that there would be a meeting with SAQA to resolve this problem.

DHET response
Mr Qonde replied that this articulation policy was so important and it was a culmination of work that has taken much intensity of effort and time. It became possible through the coordination and cooperation of every stakeholder for the work to be at this level. All institutions are accountable and understand the outcome of the policy pronouncement on this matter. There is no institution that would decline the admission of a student on the basis that the student comes from a TVET college. The only matter that gets confused at times is the specific admission requirements for a particular programme such as one's maths mark needing to be 70%.

On the funding matter, it is one of the areas in some quarters construed to be a barrier. If a student had been funded by NSFAS in a TVET college, that student would not qualify for further funding. After long engagements, DHET took the decision with NSFAS that those students are entitled to funding to study further even if they had received funding through their TVET college education.

Mr Qonde replied about the Grade 12 NQF Level 4 learner going to a TVET college to start on Level 2 of NC(V) and thus repeating. When this was picked up, DHET realised that about 60% of students doing NC(V) at colleges had matric. DHET responded with a multi-pronged approach such as career guidance and empowering academic boards in TVET colleges to give proper guidance to students that come to TVET colleges to register. They inform students that there are programmes other than NC(V) that a student who has a Grade 12 qualification can pursue through a TVET college to gain a diploma. This intervention has had the desired effect to reduce that repetition so that now it is only about 20%. Our engagement with the Department of Basic Education on the three-stream model was informed by this on how we should prepare the education system so it is able to articulate properly.

He agreed that everyone should be addressing the 'hierarchy' perception – this needs to be taken seriously across the institutions. The prestige of an institution is derived primarily from the perceived prestige of its academic programmes and qualifications. We have to collaborate on this view of colleges being second class.

Dr Aruna Singh, DHET Deputy Director-General: TVET, added about the NQF perception. We need to understand that qualifications have a purpose and each one has its own function. Even though she possesses a PhD, if she wanted to do a different qualification in a different field such as plumbing, she would need to start at Level 3 on the NQF in order to gain the knowledge required in that specific area. The public needs to understand the purpose of qualification that really matters.

Ideally a matric NSC student should not cross over and enrol for an NC(V). However, there are circumstances where a NSC graduate might want to pursue a vocational course and that needs the vocational learning starting at NC(V) Level 2.

Mr Qonde added that the DHET website does publish a list of registered, accredited colleges.

Ms Trudi van Wyk, SAQA Chief Director: Social Inclusion and Quality, said SAQA does not recommend someone with a Grade 12 qualification to go into a NC(V) but rather go into NATED studies. Where students complete N4, N5 and N6 studies, the student must complete an 18 or 24 month practical or work-integrated learning and only then they obtain the national diploma at  NQF Level 6. N4 and N5 and N6 are up to NQF Level 5 part qualifications and you need that work-integrated learning to complete the diploma. That is where the confusion comes in.

Mr Ncgogo said the person has submitted his certificates to SAQA so that it can be checked whether it qualifies for conversion to a higher level. It could be the lack of the work-integrated learning or the delay could be due to Covid-19. SAQA would respond to that question in writing

The Chairperson said that NSFAS has the N+2 rule and we agree with the rationale behind it but the concern about the funding is that it may limit and disadvantage students. However, this has been agreed to and is supported. There are instances where a student registers in an institution of higher learning and may not be able to complete their qualification as a result of discontinued studying.

The meeting was adjourned.