New Universities in Northern Cape and Mpumalanga; Role of National Institutes for Higher Education (NIHE): briefing with Deputy Minister

Higher Education, Science and Innovation

06 November 2013
Chairperson: Ms N Gina (ANC) (acting)
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Meeting Summary

With the Deputy Minister of Higher Education and Training present, the Committee heard that the National Institutes for Higher Education (NIHE) would be made redundant by the establishment of the universities. However, this would take place over a couple of years as the students currently enrolled would need to complete their studies. Members were concerned that plans for NIHE closure lacked definition and time frames but the Department said that those students could not be abandoned and labour law matters had to be dealt with carefully. Some Members commented that expectations of continued employment or transfers to the new universities existed and suggested that the skills residing in the NIHEs might be needed.
The Department provided a detailed progress report on developments at the two new universities, Sol Plaatje University (SPU) in Kimberley and Mpumalanga University (UMP) both formally established by Government Notices in August 2013.

Other questions included whether:
- NIHE staff could apply for posts at the new universities;
- assets and liabilities of the NIHEs would be transferred to the new universities;
- engineering would be offered at the new universities and when;
- private public partnerships were involved in the new universities;
- existing issues of overcrowding had been addressed;
- applications to enrol at the new universities were open and whether state bursaries were available;
- in cases where courses were offered in partnership with an existing university, which university would issue certificates;
- the student intake was too low.
- foreign students could enrol.
 

Meeting report

The Committee elected Ms N Gina (ANC) as acting Chairperson in the absence of the Chairperson. She welcomed the Deputy Minister of Higher Education and Training, Mr Mduduzi Manana.

Deputy Minister Manana thanked her and said the occasion was historic as, during the last month, ceremonies commemorating the commencement of construction of the two new universities had been held.
In response to Prof A Lotriet (DA) asking why the Committee had not been invited to the soil-turning ceremony, the Deputy Minister apologised for the oversight, said he would check with the Department that it did not happen again and stressed that the Committee’s oversight role in the establishment of the two new universities was important.

The Chairperson asked that documents be sent at least a day before a presentation in future.

Role of National Institutes for Higher Education (NIHE)
Dr Engela van Staden, acting Deputy Director General: Higher Education, spoke about the Department of Higher Education and Training (DHET) consideration of the future of National Institute of Higher Education (NIHE) in Mpumalanga and in Northern Cape.

In terms of the Higher Education Act, No 101 of 1997, the scope and functions of the NIHE are to coordinate coherent collaboration between higher education institutions operating in the province and to advise the Ministers on matters relating to regional provision of higher education. Sol Plaatje University (SPU) in Kimberley and Mpumalanga University (UMP) had been established by Government Notices in August 2013. Establishment of the new universities implied a takeover of the NIHE functions. Consideration of the status of the NIHE had to take the following into account:
- Due diligence exercises had been conducted for each;
- Both were engaged in ongoing projects

The Higher Education Act did not allow for incorporation of the NIHEs into the new universities. They could continue, but with new scope or application. If they were redefined in this way, there was potential to hamper the creation of clear lines of communication of the new universities with Further Education and Training (FET) colleges and provincial education structures, thereby creating potential for conflict of interest. If the NIHEs were dissolved, in terms of the Public Finance Management Act and the Labour Act, a plan that minimised disruption to tasks and staff and took specific circumstances per province into account, would be needed. A dissolution plan would need to link into the expansion of the new university without creating expectations of continued employment except where this was in the interest of the new university and there had to be provision for staff retrenchment, physical audits of assets, and decisions about where assets and liabilities would revert. If the NIHEs were dissolved, the Minister was required to give their Boards notice of that intention and to request representations from them.

Discussion
The Chairperson thanked Dr van Staden  for her input. The Committee had visited the NIHEs and knew there was much to do, especially in the Northern Cape. She was interested to know what arrangements had been made for students who were already enrolled at NIHE campuses.

Dr L Bosman (DA) said that as the new universities were to open in 2014, the presentation should have shown more finality regarding the NIHEs, especially as the Act stipulated procedures to be followed.

Mr S Radebe (ANC) also stressed that dissolution should not be delayed as the NIHE’s role had ended.

Prof S Mayatula (ANC) agreed, saying that the presentation was ‘wishy-washy’. If the NIHEs were not needed, there should be time frames for their closure. He was also dismayed that the Northern Cape NIHE had gone beyond its mandate and appointed academic staff.

Mr C Moni (ANC) was of the opinion that expectations of continued employment had been created.

Mr S Makhubele (ANC) said that a year ago NIHE staff were uncertain and he believed that they still were. Incorporation of the NIHE, although it was not a legal option, did not prohibit employing staff members of the NIHE at a new university. It was unfortunate that the Department had not monitored the NIHE better, before they had appointed academic staff, as now costs of retrenchment would have to be borne. He said that new universities and FET colleges could take over NIHE functions and programmes and the NIHEs should be dissolved, not necessarily in a two-step process as they could proceed simultaneously.

Mr A Mpontshane (IFP) also could not understand the Department’s indecision about the future of the NIHEs as the establishment of new universities had not been unexpected. What was the extent of their liabilities? They should not be transferred to the new universities. He had noticed academic staff recruitment advertisements for the new universities in the newspapers; could NIHE personnel apply for these posts?

Mr K Dikobo (AZAPO) said that as NIHEs were not universities, universities should not be ‘a threat’ to them and could not understand why they were not needed. The Chairperson said that he had missed the beginning of the presentation but allowed him to proceed. Mr Dikobo asked to be ‘excused’ for ‘talking like a union’ but if an employer closed a plant, he was obliged to look for alternative employment for his staff. There surely had to be a need for NIHE staff skills.

Ms D Chili (ANC) agreed that the Department might need some experience held in the staff of the NIHE but would surely not waste it.

The Chairperson, before inviting the Deputy Minister and Dr van Staden  to respond, noted that the ‘biggest’ question was why the Department was ‘indecisive’ about the future of the NIHEs, when it had been anticipated that the new universities would open in 2014.

Deputy Minister Manana responded by saying that exploring different options did not imply indecisiveness. Whatever course of action was pursued had to be pursued within the framework of law. Useful assets, of all kinds, would be incorporated into the new universities and others would be disposed of. There was a need for sensitivity, including consideration of labour law. However, the staff at the NIHEs had known that the NIHEs existed because there were no universities in those provinces and now that there would be, they would expect disestablishment. The Chairperson supported Prof Mayatula’s assertion that time frames for dissolution were needed.

Before responding to the questions, Dr van Staden  had, in the meantime, verified that the Committee had been sent an invitation to the soil-turning ceremonies. She apologised if the Department seemed indecisive. She, personally, had been through a merger and it had taken the institution concerned three years. The Department had been consulting with the NIHE boards, which included representatives of staff and students, for three years and proposals from/for them were imminent.

The two universities were not to duplicate what was offered by their partner universities, which meant that NIHEs would continue for two or three years while NIHE students completed their courses. The Northern Cape university and the Northern Cape NIHE occupied the same buildings. There was a memorandum of understanding between the NIHE and university boards detailing how the NIHE courses would be phased out while the new university’s courses would be phased in. So phasing out of the NIHE was a process that would take two to three years. Although finality was needed, there was also a need for people concerned to adopt, and adapt to, the final plan. One had to remember why mergers had taken place. It was to avoid duplication of courses and resources. NIHE boards would dissolve if their scope and application changed.

Budgets were transferable. The Northern Cape is going to have a challenge as NIHE facilities would be absorbed by the new university. Universities were national entities; NIHEs were regional but it was still important for universities to have ‘regional embedment’. In the Northern Cape, there had been an expectation that the NIHE would be the new university but this misperception was corrected and being managed.

Many projects such as Dinaledi, were conducted by a lot of South African universities, that is, they go beyond the scope of NQF Level 5 to 10 and they do assist with community engagement because that is their third mandate. These projects could be accommodated but an audit would have to be conducted to determine their extent in the provinces concerned.

The new universities had their own policies on contracts, employment conditions, student conduct etc. When academics applied there would be due diligence and some had been invited to apply for posts. But there was, inevitably, dead wood, and some would not be employed at the new universities. The Boards of the NIHEs concerned would have the responsibility of terminating their contracts fairly.

Deputy Minister Manana said that the NIHE staff should not be feeling uncertain as they had been consulted and could make proposals. The reality was that their functions would be taken over by the new universities.

The Chairperson said that in 2014 a briefing report on enrolment would be requested, along with the presence of the NIHEs.

Mr Radebe said that although the NIHEs were never envisaged to be permanent and legislation gave them no such certainty, there were nevertheless expectations. One lecturer he had met on an oversight visit had voiced his expectation of being appointed Vice Chancellor of the new university.

Prof Mayatula said that the answers given had provided clarity and he understood why there was a need for transitional arrangements while students were in the pipeline. Nevertheless, there should still be a time frame.

Mr Mpontshane agreed that the Department and other stakeholders should return with more definite proposals.

Mr Dikobo said that, on a visit to Kimberley, NIHE personnel, in the presence of Department of Higher Education and Training officials, said that they were not being consulted about arrangements on the future of the NIHE and this had not been denied by the officials present. So what the presenters were saying was not borne out by what the Committee had seen and heard. Also, students in the Northern Cape had complained about congestion – if more programmes were offered, congestion would worsen. The Chairperson commented that he was sure that this would be addressed in the next presentation.

Dr van Staden  said it was expected that the Minister would receive submissions from the NIHEs shortly and this would kickstart the process. These boards and the Department would then be happy to engage with the Committee.

Establishment of the New Universities in the Northern Cape and Mpumalanga
Both universities had been established in August 2013. Before this, there had been extensive stakeholder consultation and engagement with universities; the Council on Higher Education, NIHEs; local municipalities, schools, churches; provincial governments etc. In August 2012 the development frameworks had been published and a call for names made. In December 2012 calls for nominations for Interim Councils had been published in the government gazette and these Interim Councils had been established. A comprehensive set of institutional policies and processes had been developed. Interim management teams had been identified with heads appointed by the new councils and other members were in the process of being appointed. Partnership models had been developed and Memoranda of Understanding with partner universities had been drafted, to be finalised between partner institutions and the Interim Councils.

Both Sol Plaatje University (SPU) in the Northern Cape and Mpumalanga University would be comprehensive residential universities with  strong seats and potential for future multi-campus expansion. At SPU, academic programmes and institutional establishment would be supported in partnership with the University of the Free State (UFS) and Cape Peninsula University of Technology (CPUT). Higher Education Quality Committee (HEQC) / Council on Higher Education (CHE) accreditation and quality assurance processes were in place for a small scale 2014 start-up in selected programmes:
- Bachelor of Education in MST (UFS) – 75 students
- Information Technology (CPUT) – 35 students
- Retail Business Management (CPUT) – 35 students.

Iconic academic programmes would be offered from 2015 onwards in Heritage Studies, Archaeology, restoration architecture; and indigenous languages (Koi-San).

In Mpumalanga, in addition to a multi-campus residential university, a teacher education campus would be established at Siyabuswa Campus for Foundation and Intermediate Phase teachers. Academic programmes and institutional establishment would be supported in partnership with University of Johannesburg (UJ) and of Pretoria (UP). HEQC/ CHE accreditation and quality assurance processes were on track for Small scale start up programmes in 2014 in selected programmes:
- Bachelor of Education (Foundation Phase) [Siyabuswa] (UJ) – 100 students
- Bachelor of Agriculture (extension) (UP) – 20 students.

Secondments from partner institutions had been arranged to assist with the start-up; posts advertised and all essential processes implemented  

Potential research niche areas had been identified and discussions held with the National Research Foundation to enable a development plan towards research activity and partnerships.

The briefing also covered spatial planning and land assembly in comprehensive detail. Publicly owned land was used.

An example of a detailed breakdown of the number of classrooms, offices, residences, and laboratories was given for 2014 to 2022. Environmental impact assessments for ongoing construction were under way. Feasibility studies for each university had been submitted to National Treasury (to support the 2013 MTEF Bid) and a range of verification studies to confirm planning parameters (geotechnical, environmental, town planning) had been completed in 2012. By March 2014 28% of the 2013 MTEF Budget Allocation of R2,275bn for the implementation phase (2013 to 2014) should be spent.

Discussion
Ms Chili complained that the handout was illegible in places. She wanted more information on the student intake at different campuses which, the media had reported, was too low.

Mr Dikobo appreciated the detailed and comprehensive presentation. He noted that all ‘bush universities’ did not offer engineering; was that trend to continue?

Mr Radebe congratulated the DHET on the accomplishment which had been a long time coming. There had been no mention of public private partnerships (PPPs). He knew that in Secunda, Nelspruit and in KwaNdebele campuses, there were already insufficient residences: there should be opportunities for PPPs. As SASOL had previously contributed to higher education, they could possibly be engaged.

If CPUT delivered a course at SPU, for instance, Prof Mayatula wanted to know, which institution would grant the qualifying certificate to the student?

Mr Moni noted that both universities were offering teaching degrees and diplomas although both provinces were mining provinces. Were the sums of R6.6m and R10m for the current financial year or for the future?

Mr Makhubele appreciated the comprehensive detail of the presentation. Universities had to be globally competitive, not provincial. As one of the universities bordered neighbouring states, would students from those countries enrol?

The Chairperson said that it had been said on television that morning that Namibian students would be encouraged to enrol which had prompted someone to call and ask where one could apply to enrol. Where was this information available and had National Student Financial Aid Scheme (NSFAS) applications opened? She also wanted details on accreditation.

Mr Dikobo wanted to know whether Lowveld Agricultural College was being taken over or would it coexist?

Deputy Minister Manana said that the agricultural college would be incorporated.

Dr van Staden  said that the initial intake was small because of space constraints. Norms regarding space, for example one computer per student, were adhered to. Next year and in the future, infrastructure and academic programmes would evolve. A recruitment drive was being conducted to gauge interest. It was possible to apply to enrol online. In addition SPU was taking application forms to schools. Grade 12s who had not enrolled but who achieved better results than they expected would also be able to apply. NSFAS had made R20m available for bursaries and a system of centralised applications for these bursaries was being piloted at the new universities. An enrolment of 5-7% foreign students was the aim.

With regard to engineering, Mpumalanga would offer agricultural engineering, then mechanical, civil etc. At SPU, there would be IT engineering. Nursing would be offered in 2015 and in 2020 there would be a medical faculty.

Space sharing with the NIHE and the agricultural college was structured and organised by a timetable.

There was a debate in higher education about PPPs because some had been detrimental to government funding. But if private businesses wanted to offer accommodation, they could. Student housing contributed greatly to student success and this principle was adhered to. The DHET was meeting with SASOL to collaborate on providing chemical and electrical engineering studies.

Although the Northern Cape and Mpumalanga were mining provinces, nationally, teaching was a scarce skill, especially in the Foundation Phase.

The R6m and R10m were for 15 000 students. Over 10 years, the amount budgeted was R21bn (135 000 students at Mpumalanga and 140 000 at SPU).

Mr Dikobo had another question about construction and Dr van Staden  said that tenders were being evaluated and EIAs being finalised and construction would start in August 2014. Upgrades to existing facilities were under way.

The Chairperson thanked Dr van Staden. The doors of learning were being opened to post-school education and all should lobby for students to enrol at the new universities.

The meeting was adjourned.
 

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