ATC141028: Budgetary Review and Recommendation Report of the Portfolio Committee on Basic Education on the performance of the Department of Basic Education for the 2013/14 financial year, dated 22 October 2014
Basic Education
The Budgetary Review and Recommendation Report of the Portfolio Committee
on Basic Education on the performance of the Department of Basic Education for
the 2013/14 financial year, dated 22 October 2014
The
Portfolio Committee on Basic Education, having considered the performance of
the Department of Basic Education, reports as follows:
1. Introduction
1.1. The role and mandate of the Portfolio
Committee
The Portfolio Committee on Basic Education is mandated by sections 55
and 92 of the Constitution of the Republic of South Africa (Act 108 of 1996)
and the Rules of Parliament to oversee the activities and performance of the
Department of Basic Education and its three statutory bodies.
In this context,
the Portfolio Committee on Basic Education focuses
its work within the five constitutional mandates of Parliament, which are to
process and approve legislation, conduct oversight, ensure public
participation, process international agreements and facilitate co-operative
governance. In addition to performing these constitutional mandates, the
Committee e
ngages in various
activities and programmes focussing on the development and delivery of quality
public education to all South Africans.
The Committee also d
eals with matters referred to it by the
Speaker or the National Assembly.
1.2 Core functions of the Department
of Basic Education
The Department of
Basic Education (DBE) derives its mandate firstly from the Constitution of the
Republic of South Africa (1996), which requires education to be transformed and
democratised in accordance with the values of human dignity, equality, human
rights and freedom, non-racism and non-sexism. The Constitution guarantees
access to basic education for all, including adult basic education. Secondly,
the National Education Policy Act, 1996 Act 27 of 1996 (NEPA), inscribes into
law the policies for the national system of education, the legislative and
monitoring responsibilities of the Minister of Education, as well as the formal
relations between national and provincial authorities. In terms of NEPA, DBEs
statutory role is to formulate national policy, norms and standards as well as
to monitor and evaluate policy implementation and impact.
In line with its
mandate, the Department has a vision of a South Africa in which all people will
have access to lifelong learning, education and training opportunities, which
will, in turn, contribute towards improving the quality of life and building a
peaceful, prosperous and democratic South Africa.
In fulfilling its
mandate over the next five years, the Department is guided by the Medium Term
Strategic Framework (MSTF) designed to reflect the actions outlined in the
National Development Plan.
1.3. Purpose of the BRRR
In terms of Section 5 of the
Money
Bills Amendment Procedures and Related Matters Act, No. 9 of 2009 the National
Assembly, through its Committees, must annually compile Budgetary Review and
Recommendation reports (BRRR) that assess service delivery and financial
performance of departments and may make recommendations on forward use of
resources. The BRRR is also a source document for the Committees on
Appropriations when considering and making recommendations on the Medium Term.
1.4 Processes followed by the Portfolio
Committee in arriving at this report
In compiling this BRRR, the Portfolio Committee assessed the performance
of the Department of Basic Education with reference to the following:
·
The strategic priorities and measurable objectives as
set out in the strategic plan.
·
Expenditure trends drawn from the reports of the
National Treasury; the 2014 State of the Nation Address priorities; the reports
of the Auditor-General of South Africa and the reports on the 2014 Budget Vote.
·
The financial statements and annual report briefings,
in terms of Section 65 of the Public Finance Management Act No. 1 of 1999,
which requires the Ministers to table the Annual Reports and financial
statements for the Department and public entities before Parliament.
·
Findings of the Portfolio Committees oversight
visits, including quarterly briefings.
·
External sources assessing the performance of the
Department.
·
The National Development Plan.
The
briefings on the annual performance and financial statements of the Department
and its statutory bodies took place on 14 17 October 2014 in Parliament. The
Portfolio Committee also met with the Auditor General on the audit outcomes on
14 October 2014
.
2. Overview of the key relevant policy focus
areas
2.1 Strategic Priorities of the Department
The
essence of the vision of the Department of Basic Education is captured in the
Delivery Agreement on Outcome 1: Improving Basic Education, of which the
Minister is the principal signatory.
The objective of Outcome 1 is to improve the
quality of basic education.
The DBE sector plan,
called the
Action Plan to
2014: Towards the Realisation of Schooling 2025
, provides a
comprehensive approach to address the Outcome of improving Basic Education.
In this sector plan, the Department has set
itself 27 goals in order to give expression to its strategic mandate. Goals 14
to 27 are input goals used in achieving the 13 output goals. The 13 goals are
given expression through service delivery targets as deliverables for 2014. The
13 goals and their delivery targets relate specifically to issues that form the
foundation of basic education. These include, amongst others, increasing access
of children to quality early childhood development (ECD) programmes; improving
the access of children to quality early childhood development (ECD) below Grade
1; increasing the number of learners who master the minimum language and Mathematics
competencies in Grades 3, 6 and 9; increasing the number of Grade 12 learners
who become eligible for a Bachelors programme at a university;
increasing the number of Grade 12 learners
who pass M
athematics and Physical Science;
ensuring that all children remain effectively enrolled in school up to
the year in which they turn 15 as articulated in the South African Schools Act
84 of 1996; improving grade promotion of learners through the Grades 1 to 9
phases of school; and, improving the access of youth to Further Education and
Training (FET) beyond Grade 9.
The sector
plan is acknowledged as a useful point of departure in the sector-specific
priorities in the National Development Plan (NDP) 2030. During the 2014/15 financial
year, the Department would align its sector targets from 2025 to the NDP
horizon of 2030, with no substantial changes to priorities articulated in the
sector.
Following
the National Development Plan and building on key sector plans, critical
activities are focussed on the following outputs for the next five years:
Improved quality of teaching and learning
through the development, supply and effective utilisation of teachers;
Improved quality of teaching and learning
through the provision of adequate, quality infrastructure and Learning and
Teaching Support Materials (LTSM);
Improving assessment for learning to ensure
quality and efficiency in academic achievement;
Expanded access to Early Childhood
Development and the improvement of the quality of Grade R, with support for
pre-Grade R provision;
Strengthening, accountability and improving
management at the school, community and district level; and
Partnerships for education reform and
improved quality.
2.2 O
verview of the revised Strategic Plan and
Annual Performance Plans - any key changes from 2013/14 and 2014/15)
The DBE remains focused
on the provision of quality basic education with a focus on the following
strategic priorities in 2014:
-
Curriculum:
Focussing
on monitoring the maximum utilisation of teaching
time; curriculum
planning,
management, oversight ,coverage and delivery by teachers; responding to
content gaps; continuing with teacher development initiatives based on
identified gaps in the Annual National Assessment(ANA) and National Senior
Certificate (NSC); and monitoring training on curriculum differentiation
to ensure inclusivity.
-
Assessments:
Further
consolidation of
the assessment systems;
s
trengthening quality assurance
processes of the National Senior Certificate (NSC) through Umalusi; and
i
nternational benchmarking of
critical question papers in order to improve their credibility.
-
Learning and
Teacher Support Materials:
The
Department aims to monitor access to textbooks and workbooks by learners;
working with districts to monitor the extent to which resources were are
at classroom level; and continuing the provision of high quality workbooks
and other supplementary resources.
-
Infrastructure:
continuing to monitor
provincial spending on infrastructure
; replacing of mud and unsafe school structures through the
Accelerated School Infrastructure Development Initiative (ASIDI); and ensuring
that targets for provision of water, electricity and sanitation facilities
were met as per the National Norms and Standards.
-
Accountability:
The Department
continues to emphasise
teacher
time-on-task, teachers attendance and content knowledge; improving the
frequency and quality of monitoring and support services provided by
district offices; analysing teacher time-on-task, teachers attendance and
content knowledge; analysing District Improvement Plans (DIPs) and
providing feedback as part of the Department monitoring and oversight
function; developing and mediating the
South African Standards for the appointment of principals, circuit
managers and subject advisors; focusing on a comprehensive plan to improve
conditions of services for Grade R practitioners; and preparing for the 2015
School Governing Bodies (SGB) elections.
2.3 Key Development Indicators and International
Conventions
In order to further
advance the transformation agenda in education, South Africa has ratified a
number of international conventions that directly and/or indirectly speak to
the protection of the right to basic education, for instance, the Convention on
the Rights of the Child, the Universal Declaration of Human Rights, the World
Declaration on Education for All: Meeting Basic Learning Needs, the Convention
against Discrimination in Education and the Millennium Development Goals
(MDGs).
The DBE has made considerable
strides in the realisation of the Millennium Development Goals related to basic
education. South Africa has reached near universal primary education (UPE) (MDG
2), with findings showing that 98.8 percent of 7 to 15 year olds are attending
educational institutions. However, South Africa still faces a massive backlog
of skills, and the quality of education provided by some schools still holds
back the South African dream towards the full achievement of MDG 2 by 2015
.
2.4
Overview of the service delivery environment and context
The service delivery environment in the education sector comprises the
Department of Basic Education (DBE) and the nine provincial education
departments (PEDs), including district offices and schools, working
collaboratively to achieve Outcome 1 of governments Programme of Action. For
the period under review, based on the 2013 School Realities which reflects the
10
th
school day statistics, the education sector comprised 12 489 648
learners, 425 023 educators and 25 720 schools. The education sector is guided
in its work by
Action Plan to 2014: Towards the realisation of Schooling
2025
.
During the period under review, the DBE
continued to focus on addressing issues of q
uality education through interventions in the priority areas of improving
access to Basic Education; expansion of Early Childhood Development; Curriculum
and Assessment Policy Statements (CAPS); the Annual National Assessments;
Learner Teacher Support Materials (LTSM); National Senior Certificate results; the
competence, professionalism and status of teachers; school infrastructure
development; learner well-being; and Section 100 (1) (b) interventions in the
Eastern Cape and Limpopo.
Further factors
influencing the plans and activities of the DBE included data and information
challenges which needed to be addressed, as well as provincial budget pressures
which needed to be addressed through the DBE oversight and responsibility to
provinces.
Major achievements for the 2013/14
financial year reported in the Annual Report were as follows:
·
Recording a total of
16 212
Early Childhood Development
(ECD) practitioners in public Grade R, with 9 035 practitioner
qualifications verified;
·
Delivering 97 percent
of Learner Teacher Support Material (LTSM) ordered;
·
Reaching a peak
Matric pass percentage of 80.2 percent;
·
A total of
566 051
learners completing the
Kha Ri Gude
mass
literacy campaign;
·
Awarding
14 515
Funza Lushaka
bursaries;
·
Appointing
6 762
qualified educators who were
aged 30 and below;
·
Ensuring that
over
8
827 293
learners were fed with nutritious meals on every school day; and
·
A total of 614 767
learners in Quintile
1-3 schools having received primary health care services.
Sectoral
challenges and constraints remain as follows:
-
District capacity & effectiveness were
variable in respect of the full range of critical functions required to
support teaching and learning
,
further contributing to inequity across schools;
-
Infrastructure under-spending;
-
Learner performance in Mathematics and Science;
-
Delays in finalising the Quality Management
System (QMS) in the Education Labour Relations Council (ELRC);
-
Provincial budget pressures; and
-
Concerns about teacher competence.
2.5 A Summary
of previous key Performance Recommendations of the Portfolio Committee
2.5.1 Budgetary Review and Recommendation Report 2013
a
) Responses of the Department of Basic
Education
In the 2013 BRRR, the
Portfolio Committee recommended that the Department address audit shortcomings
highlighted by the Auditor General in order to avoid their recurrence in the
future. These shortcomings were around predetermined objectives; supply chain
management; and, compliance in respect of expenditure management, financial and
performance management.
Further key service delivery recommendations related
to a remedial programme to effect improvement on the gaps identified by the
Management Performance Assessment Tool (MPAT) conducted by the Department of
Performance Monitoring and Evaluation;
solutions to the
disbursement of the Funza Lushaka bursaries timeously to institutions and
students; reporting
on important sectoral data relating to teacher supply,
utilisation and demand that capture factors such as subjects they teach, school
phases and geographical areas; provision of adequate supply of teachers
continued improvement of Inclusive Education and increased access to Special
Schools; Improved service delivery and spending on infrastructure; accelerated
implementation of e-Education; and strengthening the communication strategy of
the Department.
Some improvements in respect of these
recommendations had been noted as follows:
·
Action plans to address audit findings
: The Department reported a number of
strategies put in place to improve the usefulness and reliability of
information in respect of predetermined objectives. These include Branches
checking and verifying reported information in terms of source documentation on
a quarterly basis, as well as conducting Branch reviews on a quarterly basis. Challenges
remain, however, with record-keeping and verification processes. The Department
also acknowledged that although Branch reviews were held, this was not to the
extent that was required. It is envisaged that going forward, these reviews
will be chaired by Deputy Director Generals (DDGs). Further strategies introduced
to improve the management of performance information are as follows:
Strategy
|
Progress
|
Development of a Strategy on the management
of performance information to be renewed annually
|
Achieved
|
Development of Standard Operating
Procedures (SOPs) for all indicators to be renewed annually
|
This is reportedly achieved for the 2013/14
Annual Performance Plan (APP). Indicators for 2014/15 have been submitted for
approval.
|
Capacity building of managers on planning
and reporting
|
The Department reports that capacity
building was achieved with most managers who write reports and plans
|
Approvals of the available supporting
documents by the DDGs
|
The Department reports that although this
was achieved in 2013/14 there are some
delays
|
Involvement of the Research, Coordination,
Monitoring and Evaluation (RCME) in verifying the reliability of data on
Quarterly Performance Reports
|
This was not achieved.
|
·
Remedial programme to effect improvement in
response to the Management Performance Assessment Tool (MPAT)
: The Department reported that an Improvement
Plan was developed and circulated to all affected managers. The plan was reportedly
monitored on an ongoing basis in 2014.
·
Progress with ensuring the timeous
disbursement of Funza Lushaka bursaries
: The Department reported that measures were introduced
to ensure the timeous disbursement of Funza Lushaka bursaries in 2014,
including revising the Funza Lushaka Implementation Protocol, with clear roles
and responsibilities having been allocated to stakeholders and instituting
quarterly inter-provincial meetings to strengthen the management of the Funza
Lushaka bursary programme. Inter-provincial meetings were held in January and
April 2014. The Department further briefed the university Education Deans Forum
and the Provincial Teacher Education and Development Committees on the Funza
Lushaka bursary programme. In addition, regular meetings were held with the
National Students Financial Aid Scheme (NSFAS) to address challenges with the
disbursement of the bursaries.
The Department reported that the timeous
disbursement of Funza Lushaka bursaries was affected by the disjuncture between
the academic year and the financial year. The Department was working with NSFAS
to make arrangements for using part of the accumulated unused funds on a
revolving basis to fund students from January to March of each academic year.
To improve the management and administration
of the bursary programme at Higher Education Institutions (HEIs), the
Department was exploring ways in which to provide additional human resource
capacity to HEIs for administrative purposes.
Given that the majority of students funded by
the Funza Lushaka bursary programme are returning students, the Department
would make arrangements to have the lists of returning students approved and
sent to NSFAS by 31 January of each year to enable NSFAS to immediately process
claims for these students. The Departments further reported that the selection
of new applicants, which normally depends on the closing dates of the HEIs,
would be completed by 31 March of each year and the approved lists would be
sent to NSFAS by 30 April of each year for the processing of claims.
An implementation evaluation of the Funza
Lushaka bursary programme, since its inception in 2007, was being undertaken in
2014. A report on the evaluation would be made available before the end of the 2014/15
financial year. It is envisaged that the recommendations of the evaluation
would further strengthen the management and administration of the bursary
programme, including the timeous disbursement of Funza Lushaka bursaries.
·
Progress on Teacher Supply, Utilisation and
Demand
: Currently the sector data
on supply, utilisation and demand that capture factors such as subjects they
teach, school phases and geographical areas was captured on EMIS and PERSAL
systems. However the Department acknowledged that the quality of such data was
such that it was of little use both for planning and operational management. To
address this challenge, the Department has started a teacher profiling project
to verify and capture data in the PERSAL. The Department aimed to complete
teacher profiling by 30 November 2014. The Department reported to the Portfolio
Committee during a workshop in Pretoria that teacher profiling had been
completed in five provinces.
In terms of teacher deployment and
recruitment, in April 2013 a Strategy was approved, designed, inter alia, to:
o
ensure stability in staffing by allowing
schools maintaining minimal learner enrolment fluctuation levels to retain the
same staffing level over a period of three years by 2014;
o
ensure that the post provisioning is aligned
with the Medium Term Expenditure budgetary processes beginning in the 2014/15
financial year and in the 2014 academic year;
o
To streamline the recruitment and placement
processes in order to achieve efficiency and effectiveness by 2014; and
o
To introduce a structured and systemic way of
filling post level one educator posts by 2014.
The Department reported that as part of
supporting the implementation of the above Strategy in the provinces, nine
provincial workshops were conducted by the Department in August/September 2013
and one national workshop in February 2014. The provincial workshops reportedly
focussed on unique implications for each PED and the national workshop
consolidated elements of good practice gathered in provincial workshops. The
Department would monitor the implementation of the Strategy in the PEDs and
report on the progress and brief the Portfolio Committee accordingly.
Notwithstanding the above efforts of the
Department to improve teacher deployment and recruitment, it must be noted that
post provisioning challenges in the Eastern Cape have taken too long to resolve
and require special attention.
·
Progress with the placement of Funza Lushaka
Bursary Scheme beneficiaries
: A report by the Department showed that as at the end of December 2013,
82 per cent of graduates had been placed in Provincial Education Departments (PEDs).
Only the Western Cape and Eastern Cape PEDs had a placement rate lower than 88
per cent. The Department indicated that new graduates who either wrote
supplementary examinations or completed their studies in mid-year or had registered
for placement were added to the placement database, hence revision of the
placement rates being necessary. It was reported that placements in the Eastern
Cape were affected by the post provisioning challenges in the province.
·
Progress on Inclusive Education
: The Department noted progress related to the
development of a concept document on the development of Staffing Norms for an
Inclusive System; the completion of a draft on the Funding Norms for an
Inclusive System which was ready for a consultation process for finalisation; processes
culminating in the gazetting of the Screening, Identification, Assessment and
Support (SIAS) for public comment in May 2014; the approval of the South
African Sign Language (SASL) CAPS for Grades R-12 in July 2014; the orientation
of almost
10 000 subject advisors
for Intermediate, Senior and FET phases on Curriculum Differentiation; and the
training of teachers from schools for the Blind on Adaptation of Curriculum and
Assessment, as well as the training of officials and teachers from Schools for
the Deaf in Sign Language.
The DBE would
prepare the system for the implementation of the curriculum which would start
at Foundation Phase and Grade 9 in 2015.
·
Improving Spending on Accelerated Schools
Infrastructure Development Initiative (ASIDI)
: Although the Department regrettably
continued the trend of underspending on ASIDI since its inception in 2011/12, due
mainly to service delivery challenges, a noticeable improvement of spending was
reported on the programme which was projected at 78 per cent of the 2013/14
allocated budget as at the end of March 2014.
·
Accelerating access to E-Education
: Findings of the audit of education
initiatives conducted in 2013 by the Department reveal, amongst others, that
the integration of Information and communications technology (ICT) in education
is becoming a reality with more schools (and teacher centres) being connected,
though not at a desired pace. Public-Private partnership with regard to the
integration of ICT in education is gaining momentum, though there is a need for
improved coordination to avoid duplications. Although more schools are being
connected through different initiatives, including initiatives funded by the
private sector, schools connectivity remains a challenge. In the light of
these challenges, the Department reported that a draft E-Education policy was
developed, to integrate ICT into all levels of the education and training system
and to outline outputs, as well as set up activities to be undertaken by all
relevant stakeholders. Further progress reported to date include schools being
provided with ICT devices and E-content resources, as well as teacher training
and professional development in ICT.
b)
Responses of the National Treasury
The National Treasury responded to the
Portfolio Committees concern regarding the Departments abilities to handle
the Accelerated Infrastructure Delivery Initiative (ASIDI), considering that 49
schools earmarked for 2011/12 were only handed over in 2013. The National
Treasury expressed the same concern though noted that the process of handing over
new schools to communities had accelerated in 2013/14. The National Treasury
committed to continue to closely monitor progress, provide guidance and assist
where possible as had been the case through the Infrastructure Delivery
Improvement Programme.
The National Treasury further responded to
the Committees concern with the slow progress in the implementation of the
Continuing Professional Teacher Development (CPTD) Programme. The National
Treasury indicated that they were concerned by the initial delay in filling
posts when the CTPD was established in 2013/14. However, it appeared that most of
the vacancies had been filled. The National Treasury also initiated an
expenditure and performance review of in-service training to understand how Continuing
Professional Teacher Development was being implemented, and to identify the
elements of the plan that should be prioritised within current budgets to
maximise its impact.
3. Overview
and Assessment of Financial Performance
3.1
Overview of Vote 15: Basic Education for 2013/14
Table 1: Allocation
vs. Expenditure per Programme, 2012/13 and 2013/14
|
2013/14
|
2012/13
|
||||||
Programme
|
Allocation
(Final
Appropriation)
|
Actual
Expenditure
|
Deviation/
Variance
|
% Spent
|
Allocation
|
Actual
Expenditure
|
Deviation/
Variance
|
%
Spent
|
|
R 000
|
|||||||
Administration
|
366 914
|
366 500
|
414
|
99.9
|
322 885
|
317 328
|
5 557
|
98.3
|
Curriculum
Policy, Support and Monitoring
|
1
471 088
|
1
469 592
|
1 496
|
99.9
|
1 417
748
|
1 398
906
|
18 842
|
98.7
|
Teachers,
Education Human Resources Development and Institutional Development
|
1
011 592
|
1
010 829
|
763
|
99.9
|
863 619
|
820 577
|
43 042
|
95.0
|
Planning,
Information and Assessment
|
8
995 880
|
8
435 609
|
560 271
|
93.8
|
8 126
538
|
6 897
873
|
1 228
665
|
84.9
|
Education
Enrichment Services
|
5
773 781
|
5
728 564
|
45 217
|
99.2
|
5 473
204
|
5 451
200
|
22 004
|
99.6
|
Total
|
17 619
255
|
17 011
094
|
608 161
|
96.5
|
16 203
994
|
14 885
884
|
1 318
110
|
91.9
|
3.1.1
Allocation
The main appropriation for the Basic Education Vote increased from R16.2
billion in the 2012/13 financial year to R17.6 billion in 2013/14. The majority
of the budget (R13.4 billion) consisted of
transfer payments to Conditional Grants (R12.4
billion), Public Entities (R1 billion) and Other Transfers (R16.967 million).
The remainder of the budget (R4.2 billion)
consisted of Compensation of Employees (R282.1 million), Examiners and
Moderators (R14.7 million), Earmarked Funds (R1.6 billion), Office
Accommodation (R149.1 million), Specifically and Exclusively Appropriated funds(R1.96
billion), Departmental Operations ( R149.8 million) and Departmental Projects (R102.1
million).
3.1.2
Virements and shifts
Virements
amounting to R106.120 million were made as follows:
·
The Department shifted funds from Curriculum
Policy Support and Monitoring to other programmes such as Administration (R16.330
million); Teachers, Education Human Resources and Institutional Development (R31.050
million); and Planning Information and Assessment (9 000).
·
Shifts were also made from Educational
Enrichment Services to other programmes such as Administration (R7.195 Million
and R238 000); Curriculum Policy Support and Monitoring (R3.320 million); and
Teachers Education Human Resources and Institutional Development (R787 000).
3.2
Spending trends during 2013/14
Overall, the Department spent 96.5 percent of its allocated budget in 2013/14
compared to 91.9 percent in 2012/13. The unspent balance of R608.2 million at
the end of 2013/14 is less than in 2012/13, when R1.32 billion was unspent.
Table 1 shows
that the main contributor to the under-spending is Programme 4 that has
consistently under spent in the previous three financial years. With regard to
the conditional grants, under-expenditure was reported with respect to the
HIV and AIDS and
the Technical
Secondary Schools Recapitalisation conditional grants which spent 95.4 per cent
and 85.1 per cent respectively.
Reasons for deviation in the 2013/14 expenditure were
reported as follows:
·
Programme 4: Planning, Information and Assessment
The School Infrastructure Backlog indirect grant under-spent the
allocated budget as a consequence of the liquidation of contractors which took
place in the 2012/13 financial year, resulting in lengthy procurement processes
of replacement contractors. Some contracts were terminated due to poor
performance.
·
Programme 5: Educational Enrichment Services -
The under-expenditure was due to transfers withheld for HIV and AIDS
conditional grants amounting to R9, 727 million to KwaZulu-Natal province and
the Technical Secondary Schools Recapitalisation conditional grant to the
Eastern Cape and Limpopo provinces amounting to R34, 607 million due to low
spending.
·
Compensation of
Employees (CoE): Under-expenditure was as a result of vacancies within the
Department that were filled later in the financial year.
·
Goods and Services:
Overspending was due to the number of question papers that were set, they
increased from 76 in 2007 to 260 for the National Senior Certificate for each
examination cycle, which includes the November and the March supplementary
examinations, and an additional 171 question papers for the Senior Certificate
May/June examination. Furthermore, given that CAPs is being implemented for the
first time in Grade 12 in 2014, exemplar question paper and examination papers
guidelines had to be developed for all subjects.
·
School Based
Assessment (SBA): In strengthening SBA, which was raised in the Annual Quality
Assurance Reports of Umalusi for the past 3 years, as a serious risk to the
credibility of the NSC, National moderation of SBA was conducted across all
nine Provincial Education Departments in seven key subjects.
3.3
Report of the Auditor-General (A-G)
The Department received an unqualified audit opinion
for
2013/14
as in previous
years. Emphasis of matters raised by the Auditor-General (A-G) included:
·
Restatement of
corresponding figures: Corresponding figures reported at 31 March 2013 had been
restated as a result of an error discovered during the year ending 31 March
2014, and for the year ending, 31 March 2013.
·
Material
under-spending of the budget: The budget of Programme 4 was materially
under-spent by R560 million. The under-spending was in respect of the School
Infrastructure Backlog Grant ASIDI.
The A-G also drew attention to additional matters including the
following:
·
Reliability of reported
performance information in respect of Programmes 2, 3, 4 and 5:
Regarding Programmes
2 and 4, the A-G found that the Department could not provide sufficient
appropriate evidence in support of the information presented. The reported
performance information for Programmes 3 and 5 were materially misstated due to
the cumulative effect of numerous immaterial uncorrected misstatements in the
targets relevant to these Programmes. The A-G found that this was because the
validity of reported achievements against source documentation was not
adequately reviewed during the quarterly evaluation of the performance report
submitted to the Monitoring and Evaluation Unit.
·
Material
non-compliance with legislation
was reported as follows:
o
Strategic planning and
performance management:
The Accounting officer did not ensure that the
Department upheld and maintained an effective, efficient and transparent system
of internal control regarding performance management, as required by the Public
Finance Management Act (PFMA).
o
Annual financial
statements:
The
financial statements submitted for auditing were not prepared in accordance
with the requirements of the PFMA. Areas identified by the auditors in the
financial statements submitted were subsequently corrected and the supporting
records provided. However, uncorrected material misstatements and supporting
records that could not be provided resulted in material findings on the annual
performance report.
o
Expenditure
management:
The
accounting officer did not take effective steps to prevent irregular
expenditure which amounted to R913.6 million, as required by section 38(1) (c)
(ii) of the PFMA. This mainly related to the infrastructure programme.
o
Transfer payments:
The Department did
not ensure that transfers and subsidies to the National Student Financial
Scheme were applied for their intended purposes, in line with treasury
regulations.
o
Procurement and
contract management:
Invitations
for competitive bidding were not always advertised for the required minimum period
of 21 days, as required by treasury regulations. Quotations were accepted from
bidders who did not declare as to whether they were employed by the state or
connected to persons employed by the state, as required by treasury
regulations.
o
Human resource management:
The
A-G found that employees were appointed without following due process to verify
the claims made in their applications, contrary to public service regulations.
o
Governance:
The accounting
officer did not ensure that the internal audit unit was adequately resourced,
particularly with regard to the necessary technical skills required to perform
an audit of the infrastructure programme.
·
A-Gs
recommendations
The A-G highlighted the following recommended
actions for the Department and its entities:
·
The Implementation of
Action Plans prepared to address internal and external audit findings should be
enforced to prevent a re-occurrence of matters previously reported.
·
Each staff member in
the Department should be held accountable to deliver on their roles and
responsibilities through the performance management system. There should be a
process of consequence management for poor / non-performers. This should be
incorporated into the 2014/15 performance reviews.
·
The Department should
ensure that for all reported achievements for the financial year, these could
be easily linked the relevant documentation. Where the department relies on
information from provincial departments of education (PDEs) for the
achievements reported on, the department their monitoring and evaluation unit
and responsible Branches should carry out verification checks to ensure that
the information supplied by the relevant PDEs is a true reflection. Improvement
in controls due to poor record-keeping by directorates to maintain adequate
supporting documentation in respect of their performance measures must be
implemented.
The monitoring and
evaluation directorate must also review the current resources available against
what is required to accurately review the documentation.
·
Leadership oversight
during all phases of the infrastructure delivery process should be
strengthened. This will need to be performed by suitably skilled officials to
ensure compliance with the requirements of the signed Memoranda of Agreements
with Implementing Agents. The extent of resources required to fulfil these
oversight responsibilities should be carefully considered.
·
Improvements in the
project management of internal audits planned to ensure the timing and extent
of resources required should be allocated to prioritise significant risks
impacting the department (e.g. infrastructure, pre-determined objectives,
compliance reviews, etc.).
The DBE previously reported to the Portfolio
Committee the following key initiatives to prevent a repeat of under- spending
on the part of ASIDI:
·
Additional Implementing Agents had been
awarded and contracts tightened to include penalties for non-performance by Implementing
Agents (IAs).
·
The number of projects awarded to a single
service provider had been limited to a maximum of five to a contractor and 10
to PSP in order to mitigate the risks associated with termination and/or poor
performance.
·
The DBE had recruited additional internal
capacity to ensure efficient management of the programme.
·
The DBE was focusing on putting more controls
in place to ensure yet another unqualified audit in future years.
4. Financial
Performance for the First Quarter 2014/15, DBE
4.1
Analysis
of the First Quarter Expenditure Report for 2014/15 Financial Year
The
allocation against the Actual Expenditure per programme for the 2014/15
Financial Year was as follows
:
PROGRAMMES
|
2013/14
|
Expenditure as % of Adjusted Appropriation
|
||
FINAL APROPRIATION
|
ACTUAL EXPENDITURE
|
VARIANCE
|
||
R000
|
R000
|
R000
|
||
Administration
|
335 580
|
87 275
|
248 305
|
26.0%
|
Curriculum Policy, Support and Monitoring
|
1 523 621
|
40 964
|
1 482 657
|
2.7%
|
Teachers, Education Human Resources Development and Institutional
Development
|
984 697
|
934 115
|
50 582
|
94.9%
|
Planning, Information and Assessment
|
8 988 995
|
2 092 732
|
6 896 263
|
23.3%
|
Educational Enrichment Services
|
5 759 012
|
1 837 445
|
3 921 567
|
31.9%
|
Total
|
17 591 905
|
4 992 531
|
12 599 374
|
28.4%
|
The
allocation against the Actual Expenditure per item for the 2013/14 Financial
Year was as follows
:
ECONOMIC CLASSIFICATION
|
2013/14
|
Expenditure as % of Adjusted Appropriation
|
||
FINAL APPROPRIATION
|
ACTUAL EXPENDITURE
|
VARIANCE
|
||
R000
|
R000
|
R000
|
||
Compensation of Employees
|
389 366
|
88 136
|
301 230
|
22.7%
|
Goods and Services
|
1 880 379
|
128 061
|
1 752 318
|
6.8%
|
Transfers and Subsidies
|
13 372 051
|
4 625 227
|
8 746 824
|
34.6%
|
Payment for Capital Assets
|
1 950 109
|
151 107
|
1 799 002
|
7.8%
|
Total
|
17 591 905
|
4 992 531
|
12 599 374
|
28.4%
|
4.2
Expenditure Trends
The total Final Appropriation budget of the Department for the 2014/15
financial year amounts to R19 680.146 million which represented a nominal
increase of R2.1 billion, or 11.7 percent, from 2013/14. The majority of the
budget (R14 267.387 million) consisted of transfer payments as follows:
·
Conditional Grants:
R13 169.549 million;
·
Transfers to Public
Entities: R1 054 853 million; and
·
Other Transfers: R42.985
million.
The remainder of the
budget (R5 413.759 million) consisted of the following:
-
Compensation of Employees: R292.253 million;
-
Examiners and Moderators: R19.546 million;
-
Earmarked Funds: R1 781.946 million;
-
Office Accommodation: R158.813 million;
-
Specifically and Exclusively Appropriated: R2 938.503 million;
-
Departmental Operations: R127.299 million; and
-
Departmental Projects: R71.092 million
The total actual expenditure of the Department for the 2014/15 financial
year first quarter amounted to R6 011.267 million or 30.5 percent of the
available budget. With the exception of
Programme 2,
expenditure was largely on track.
4.2.1 Programme One:
Administration (25.6 percent) -
Expenditure on
Programme One was R88.8 million or 25.6 percent compared to spending of R87.3 million,
when compared to the same period in 2012/13. The increase was primarily due to
additional spending on goods and services.
4.2.2 Programme Two:
Curriculum Policy, Support and Monitoring (7.9 percent) -
The spending on this Programme at the end of the first quarter was R154.3
million or 7.9 percent, the majority of which was spent on goods and services
and compensation of employees. The low spending in this Programme was
attributed mainly to the delays in the start of the Kha Ri Gude Mass Literacy programme
due to procurements processes which could not be finalized on time. The
under-expenditure was also attributed to the earmarked fund for Workbooks. Campaign
and Workbooks. The Department explained that the spending on these earmarked
funds normally takes place in the second and third quarter of the financial
year.
4.2.3 Programme
Three: Teachers, Education Human Resources and Institutional Development (80.4
percent)
Expenditure under this Programme to the end of the
first quarter was R1.02 billion,
the bulk of which was spent on compensation of employees and goods and
services. T
he high spending in this Programme was in respect of the
once off transfer to NSFAS for Funza Lushaka Bursaries, which was made in April
2014.
4.2.4 Programme Four: Planning, Information and Assessment (27.7
percent) -
With regard to Programme Four,
the bulk of the allocation was in respect of payment of the ASIDI project.
Expenditure at the end of the first quarter was at 27.7 percent compared to 23.3
per cent in the previous financial year.
4.2.5 Programme Five: Educational Enrichment Services (32.7 percent) -
Expenditure
in this Programme was 32.7 percent of the available budget at the end of the
first quarter, the majority of which was spent on compensation of employees.
Overall, except for Programme Two which
is
significantly under spent,
expenditure of the Department per Programme at the end of the first quarter was
on track. However, the School Infrastructure Backlog Indirect Grant in
Programme 4 experienced slow spending in respect of payments for the ASIDI
project. This is attributed to the slow submission of invoices by implementing
agencies. The problem in relation to the ASIDI project has persisted since
project inception in 2011/12.
The Department reported that its administrative
and financial systems were in place. Furthermore expenditure was monitored on a
monthly basis and responsibility managers were requested to provide reasons if
the progress on projects was not satisfactory.
4.3
Overview and Assessment of Service Delivery Performance
4.3.1 Service
delivery performance for 2013/14
The
Annual Performance Plan
summarises the
priorities of the DBE as aligned to the
Delivery Agreement
of
OUTCOME 1
: Improving the quality of Basic Education
and the
Action Plan to 2014:
Towards the Realisation of Schooling 2025
.
The total number of targets for all DBE programmes was 57,
consisting of 52 annual targets (91 percent), two quarterly targets (4 percent),
and three bi-annual targets (5 percent).
a) Programme One:
Administration -
The Administration
Programme is responsible for the management of the Department and the provision
of strategic and administrative support services.
Programme One
Targeted Outputs vs. Actual Output for 2013/14
Within this programme, targets were achieved or
exceeded in all seven performance indicators, compared to targets met in all
six performance indicators in 2013/14:
·
Of a targeted 300 officials (out of 758) participating
in staff development activities, a total of 359 officials attended staff
development activities.
A positive variance of 59 had been achieved.
·
Of a targeted 60
internships implemented for unemployed graduates
for the
financial year, the Department achieved 63 internships for the financial year.
·
All Senior Management Service (SMS) members
signed financial disclosure statement forms within the stipulated time, as
targeted.
·
The target of finalising and submitting timeously
to the DPME, self-assessments through the Management Performance Assessment
Tool (MPAT) for the 2013/14 cycle was also met.
·
In addition, the
Department was able to meet the target of compiling two reports highlighting
South Africas role and participation in multilateral bodies and international
affairs in educational activities.
·
A performance
information capacity management strategy was developed.
b)
Programme Two: Curriculum Policy, Support and
Monitoring -
The purpose of Programme Two
is
to develop curriculum and assessment policies and to
monitor and support their implementation.
Programme Two
Targeted Outputs vs. Actual Output for 2013/14
Within this programme, targets were reportedly fully achieved
in 16 of 21 of the performance indicators, while in five indicators the
Department reported that 50 per cent or more of the target had been realized,
supported by credible evidence. Targets that were fully achieved include the
following:
·
The Department targeted the completion of the audit of
E-education, which was completed.
·
The Department aimed to orientate 3 000 subject
advisors and other teaching professionals in the Curriculum and Assessment
Policy Statement (CAPS). A total of 4 073 teaching professionals were oriented
in the CAPS, giving a positive variance of 1 073 achieved.
·
The Department aimed to train 200 district officials
and teachers in multi-grade teaching in all provinces in 2013 (through a nationally
funded intervention). In this regard, the Department exceeded its target and
trained 331 district officials and teachers.
·
The Department exceeded its set target of 74 per cent
of learners who obtain a National Senior Certificate (NSC) by obtaining 78.2
per cent in the January results and 80.2 per cent after supplementary
examinations.
·
The Department reported meeting the set target of 97
to 100 per cent of the distribution to schools of ordered workbooks for Grades
3, 6 and 9.
·
The Department aimed to develop different exemplars
and other tools to support ANA and NSC preparations for 2013 and has met its
targets.
·
The target for the number of Braille workbooks
distributed to learners with visual impairments was 5 000. The Department
reported that 10 430 were distributed.
·
The Department aimed to conduct an audit of special
schools to determine the utilization of assistive devices, which was conducted
in all schools for the blind.
·
The Department also met the target for the number of
qualified ECD practitioners in public Grade R classes.
The five targets that were not fully achieved
related to the introduction of Mind the Gap titles to be introduced for Grade
12 learning resource supplements in 2013; the distribution of Grade 12 Siyavula
Mathematics and Physical
textbooks; and,
the number of learners enrolled in the Kha Ri Gude programme.
c) Programme 3: Teachers
Programme Three Targeted Outputs vs.
Actual Output for 2013/14
This programme achieved targets in seven of the
10 performance indicators as follows:
·
The Department set a target to develop a user-friendly
guide to available professional development programmes to be available on its
website with 250 offerings. The Department was able to achieve 314 offerings
covering 33 fields of study.
·
The target for the n
umber of qualified
teachers aged 30 and below entering the Public Service as teachers for the
first time during the past year was set at 7 400. The Department only
achieved 6 762 teachers.
·
The
Department was able to award 14 513 bursaries to students enrolled for
initial teacher education during the past year against a target of 14 500.
·
The
percentage of ordinary public schools where the SGB met the minimum criteria in
terms of effectiveness as determined through a school monitoring sample survey
was set at 52 percent. A total of 2 119 schools were surveyed to determine the
effectiveness of SGBs. At least 85 percent of schools met the minimum criteria
in terms of effectiveness.
·
The
Department set a target for the number of public ordinary schools moderated
through school-based IQMS evaluations per year at 8000. The Department was able
to achieve 9 330.
·
The
Department had a 50 percent target for principals in ordinary public schools
rating the support services of districts as being satisfactory as determined in
a sample survey. The target was exceeded and 87 percent was reached.
d)
Programme Four Targeted Outputs vs. Actual Output for 2013/14
Within this programme, targets were achieved or
exceeded in 13 of the 14 performance indicators in 2013/14:
·
In
respect of the provision of valid and reliable data on learner performance in
the ANA to improve the quality of basic education, the Department was able to
distribute the national report on ANA 2013 results to the nine provinces and 81
districts. The report was officially released by the Minister to the general
public and the PEDs on 5 December 2013.
·
Regarding
the provision of valid and reliable data on learner performance in the NSC
examinations that would support the improvement of the quality of basic
education, the Department set a target of four national exam reports on learner
performance in Grade 12 be released: Technical Report; detailed Schools
Statistics Report; Diagnostic Report in selected subjects; and Report on School
Statistics indicating three years performance in selected subjects. All four
reports were produced in December 2013 and released in January 2014.
·
In
respect of the number of exemplars developed in key subjects for the
implementation of CAPS, the Department was able to set exemplars nine selected
subjects and released to PEDs for printing and distribution to all schools. It
was envisaged that these exemplars would assist teachers with the
implementation of CAPS-related assessments.
·
The
Department conducted a pilot study in selected districts where ANA results were
analysed to inform support and improvement programmes for schools. The pilot
study report had been compiled and was available.
·
The
target for the number of schools built and completed under the ASIDI project
was 140 and was not met. The Department completed 36 schools in 2013/14.
Cumulatively 53 schools had been completed to date.
·
The
target for the percentage of 7 to 15-year-olds attending education institutions
was 98.7 percent. The Department achieved 98.8 percent.
·
The target for the percentage of children who turned 9
in the previous year who were currently enrolled in Grade 4 (or a higher grade)
was 64 percent. The Department was able to achieve 82.8 percent.
·
The target set for the percentage of children who
turned 12 in the previous year who were currently enrolled in Grade 7 (or a
higher grade) was 51 percent. The Department was able to achieve 70.1 percent.
·
The target for the percentage of Grade 1 learners who
received formal Grade R according to a school monitoring sample survey was set
at 87 percent. The Department achieved a total of 93.9 percent.
·
The target for the number of schools benefitting from
the Adopt-a-School programme linked to the Nedlac Accord on Basic Education
(under the auspices of the QLTC) was set at 375. The Department reached a total
of 387 schools
·
In respect of the release of the NEEDU Report, the Minister
released the NEEDU National Report on the State of Literacy Teaching and
Learning in the Foundation Phase on 2 May 2013.
e)
Programme Five Targeted Outputs vs.
Actual Output for 2013/14
In this
programme, three of the five set targets were fully met.
·
Regarding
the number of learners benefitting from the ISHP, the Department had a quarter
two target of 375 000 and a quarter four target of 375 000. Data
received from the Department of Health showed a total of 614 767 for
quarters one to three.
·
The
Department set a target in respect of the Number of learners that were provided
with meals in the NSNP at 8 700 000 and achieved a total of
8 827 419 in Quintile 1 3 only.
·
The
Department developed a system for capturing information on choral and sport
participation in the DBE. This target was reached and being implemented.
·
The
number of learners participating in DBE-organised activities on citizenship,
rights and responsibilities and constitutional values was set at 2 000 and
the Department was able to reach a total of 1 963 learners.
·
The
Department set a target for the number of public ordinary schools participating
in Spelling Bees to support reading initiatives at 250 and was able to achieve
a total of 259 schools.
The
achievement of the planned targets as outlined above should be considered in
the context of the material findings on the reliability of the reported
performance information highlighted in the A-Gs report.
5. Consideration of other service
delivery performance findings
5.1 A summary of key service delivery
issues from oversight visit reports
5.1.1 Oversight visit to the Eastern Cape
The fourth Parliament
Portfolio Committee conducted oversight visits to underperforming districts in the
Eastern Cape from 28 31 January 2014.
The purpose of the oversight was to assess the
state of school readiness for 2014 in these districts. The framework for the
visits was guided by key interventions and priorities set out in major
government plans to ensure that enabling conditions for quality teaching and
learning are established. In this regard, the Portfolio Committee focused on
critical areas such
as the state of
the school environment; the supply and training of teachers; readiness to
implement the Curriculum and Assessment Policy Statement (CAPS) with emphasis
on the Intermediate Phase; the state of admission and registration of learners;
the delivery of textbooks, workbooks and stationery; the functionality of
school governance and management bodies; and, the availability of learner
transport and school nutrition to qualifying learners.
The following section
summarises critical findings that emerged:
a)
Improvement
in the delivery of LTSM
Despite considerable strides the province was
making in the delivery of LTSM, several schools visited experienced shortages and
in some cases oversupply of textbooks, mainly due to changes in learner
enrolment. Encouragingly, the Department reported that it was doing mop up
operations to identify and deliver outstanding textbooks. The retrieval of
textbooks was at a low level in several schools.
b)
Post-provisioning
challenges
- As in 2013, p
ost-provisioning remained a major challenge. A number
of schools visited experienced shortages of teachers or lacked qualified
teachers in gateway subjects, despite the availability of Funza Lushaka
bursars, which raised the provinces capacity to manage the policy of Post-Provisioning
Norms (PPN). Further challenges in post provisioning related to the movement of
teachers additional to the post establishment and temporary teachers being made
permanent. The Committee recommended that the Eastern Cape Department of Education
deal with the issue of vacancies as a matter of urgency.
While
the Department conducted workshops with Provinces on the implementation of the
Strategy designed to
streamline the recruitment and placement processes of teachers to
achieve efficiency and effectiveness, as reported elsewhere in this
report, to date the Eastern
Cape still faces post provisioning challenges. It could thus be
recommended that the DBE
should intensify its support to the Eastern Province to ensure that post
provisioning challenges
in the province are resolved.
c)
Learner transport
: The Committee also found that
not all deserving learners were benefiting from learner transport. The
Committees oversight visit to other provinces suggests that this is a common
challenge that requires attention.
d)
Data credibility
: Another challenge facing the Provincial
Department was that of accurate records of numbers. There was an urgent need to
address the inefficiencies in the system as data could not be verified.
e)
Infrastructure
: Some
schools experienced infrastructure backlog which included the poor
state
of the school buildings, inadequate basic facilities such as the water supply,
sanitation, security fencing and electricity as well as a shortage of
classrooms, laboratories and libraries. There was also a shortage of furniture
for learners, particularly chairs, a matter which needed to be addressed as a
matter of urgency.
f)
Support to schools
: In respect of strategies to
improve learner performance, it was found that several schools were not
utilising their ANA results as a diagnostic tool to improve their performance.
In a few cases, schools did not have a record of their ANA results.
In terms of the realignment and rationalisation of
schools that was underway in Qumbu District, it seemed that the Province was
not prepared since there seemed to be no effective planning in place. From the
engagement with schools, circuit and district officials in both districts, it
became evident that there was a need for more targeted support to schools.
g)
The Quality Learning and Teaching Campaign (QLTC)
: The Committee also found that although the Quality Learning and
Teaching Campaign (QLTC) was established in several schools, it was
ineffective, which
compromised efforts to address the challenges of
learner discipline and parental involvement.
5.2
Findings of the Management Performance Assessment Tool (MPAT)
conducted by the
Department of
Performance Monitoring and Evaluation (DPME)
The
Management
Performance Assessment Tool (MPAT)
of
2013
assessed the performance of
departments in respect of Strategic Management, Governance and Accountability,
Human Resource Management and Financial Management.
Findings of the MPAT revealed both strengths and
weaknesses in the performance of the Department of Basic Education.
5.3
Concluding comments on service delivery
There were notable achievements during the 2013/14 period towards
improving the quality of basic education. Important gains made included the
improvement of NSC results.
The Departments oversight role
became more prominent in improving learner performance, through a number of
interventions. Challenges remain with regard to the quality of learner
performance. Further notable challenges include teacher development and
competence, infrastructure backlogs and imbalances in the supply and demand of competent
educators. For the most part of the period under review, challenges were
identified in implementing the crucial ASIDI programme that affected the
achievement of targets.
Whereas,
good progress has been made by the DBE in alignment with targets articulated in
the NDP, there is a need for a review of targets, refinement of strategies and institutionalisation
of interventions introduced to improve district support and performance,
teacher development and performance, learner performance and quality in ECD to
ensure increasing meaningful compliance with the NDP implications for the
sector.
6. Statutory Bodies
6.1 Council for Quality Assurance in General and
Further Education and Training (Umalusi)
Council for Quality
Assurance in General and Further Education and Training (Umalusi) for 2013/14
Umalusi set and maintained educational standards and
assured quality through a combination of processes and interventions. The
2012/2013 quality assurance regime included the following:
§
Evaluation and benchmarking of existing qualifications and curricula
(Intended curriculum) and issuing authentic certificates; development of new
qualifications and curricula; and
§
Ensuring through external moderation processes that assessments at exit
points are of an
acceptable
standard and that examinations are conducted in a credible manner through
verifying the national and provincial monitoring systems (Examined
curriculum).
Umalusi ensured that standardisation processes were
reliable, consistent and that standardisation decisions were upheld during
resulting. The Council also accredited private institutions (schools, FET
colleges and Adult Centres) to offer the qualifications Umalusi certified
(enacted curriculum). Further, Umalusi accredited private assessment bodies to
offer/assess the qualifications Umalusi certified and monitoring of public
assessment bodies.
The
Portfolio Committee was briefed on aspects of the following Units with role,
functions and current status of performance areas from April 2013 March 2014
as follows:
6.1.1
Qualifications, Curriculum and Certification
Unit (QCC)
The GFETQSF was gazetted by SAQA in August 2013. The
National Senior Certificate for Adults (NASCA) was registered on the NQF in
December 2013. Umalusi provided guidance in terms of NASCA curriculum
development. The General Education and Training Certificate (GETCA) was
published for public comment to replace GETC: ABET. Policies regarding the
management of qualifications, curricula and certifications was also reviewed by
Umalusi. Further, the Department of Basic Education was implementing the CAPS
and Umalusi was currently analyzing the changes made to the curricula and the
standard of assessment. In respect of the curriculum evaluation and
benchmarking, Umalusi was undertaking a longitudinal study across the four
phases of schooling on CAPS as per plan.
The FET CAPS project prioritized
with 15 subjects analyzed and benchmarked. Reports were being finalized for
publication and dissemination.
In respect of certification, Umalusi developed and enhanced
the system. The certification for all qualifications was undertaken as data was
submitted. Verification was undertaken as per service level agreements.
6.1.2
Quality Assurance of Assessment Unit (QAA)
The
exterior moderation of question papers were completed as per plan. Reports were
submitted to the Ministers of Basic Education and Higher Education and Training
on all 2013 exams. Umalusi also completed the moderation of marking as planned
with reports to both Ministers on all 2013 exams. All internal assessments were
moderated and the verification monitoring conduct of exams were monitored as
planned. All monitoring of marking exams and standardisation was completed as
planned.
6.1.3
Evaluation and Accreditation Unit (E&A)
All new
accreditation processes were opened for Independent Schools, FET Colleges and
AET Centres and completed as planned. Regarding site visits, there were none
for Independent Schools due to the transition from old to new accreditation
processes. Umalusi monitored the Independent Examination Board (IEB) for
continued accreditation to assess the NSC. SACAI was also monitored for
continued provisional accreditation to assess the NSC in the pilot exams in
2013.
6.1.4
Statistical Information and Research Unit
(SIR)
Umalusi finalised the following reports:
·
A comparative report
on the education landscape of the countries in the Southern African Association
for Educational Assessment;
·
Making
educational judgments 2; and
·
National Senior
Certificate matriculation results as predictors of academic success in higher
education; and
·
Umalusi published the
following reports:
o
Re-thinking ABET and community education some thoughts on curriculum
issues for adults.
o
The Future of Rural Education: Research and Teaching;
o
Towards a construct for assessing high level language ability in the
National Senior Certificate examinations.
6.1.5
Governance and Office of the Chief
Executive Officer
In respect of the Strategic and Annual
Performance Plans, Umalusi developed a new planning cycle and organisational
reports published as required. The policies were developed and
implemented after Council approval. Umalusi continued performance evaluation
and monitoring on a quarterly basis. Umalusi maintained organizational
governance through council meetings, support to committees and rendering of
services. Umalusi also implemented its PR Communication Strategy as planned.
Umalusi also forged and maintained relationships with political structures,
DBE, DHET and other statutory and quality assurance bodies.
6.1.6
Finance, HRD and
Administration Support
Umalusi received an unqualified
audit the history of organization. All creditors were paid within 30 days
with any surpluses invested at CPD. Umalusi also ensured that all assets were
registered and labeled. The internal renovations to the building was successful
despite space constraints, therefore Umalusi requested for the purchase of
additional premises next door. The development of staff was a priority with
greater budget demands for 2013/14 and beyond.
6.1.7
Financial Performance for 2013/14
Revenue
|
Amount
|
Certification, verification and accreditation
|
20 613 614
|
Department of Basic Education Grant
|
97 662 000
|
Interest and other income
|
2 857 505
|
Total Income
|
R 121 133 119
|
Expenditure
|
101 529 647
|
Surplus
|
R 19 603 472
|
The surplus was due to:
Increased accreditation applications;
Private FET college fee collections increased;
Interest income form reserves still not expended; and
Reduced expenditure due to approval of posts to be filled over two
financial years
Financial Position
for 2013/14
Assets
|
37 640 497
|
Property & equipment
|
37 485 127
|
Intangible assets
|
155 370
|
Current Assets
|
50 924 402
|
Trade & other receivables
|
4 186 696
|
Cash & cash equivalents
|
46 737 706
|
TOTAL ASSETS
|
R 88 564 899
|
Equity
|
73 689 836
|
Accumulated surplus
|
65 493 214
|
Revaluation reserve
|
8 196 622
|
Liabilities
|
14 875 063
|
Trade & other payables
|
9 578 740
|
Provisions
|
5 296 323
|
TOTAL
EQUITY
& LIABILITIES
|
R 88 564 899
|
Umalusi
3 Year Forecast
2014/15
|
2015/16
|
2016/17
|
2017/18
|
R 134 808 098
|
R 151 523 147
|
R 173 409 843
|
R 193 296 806
|
R 107 354 000
Shortfall-------→
|
R 112 705 000
R 16 884 016
|
R 118 678 000
R 33 836 343
|
R 124 612 000
R 42 361 804
|
Budgets were expected to increase by CPI, but in
Umalusis case true inflation costs like travel, accommodation, flights, etc.
were way above CPI.
|
|||
Y/Y Percentage Increase
|
|||
22%
|
12%
|
14%
|
11%
|
10%
|
5%
|
5%
|
5%
|
Umalusi
highlighted some of the current issues and the way forward as follows:
·
Implementation of the GFETQSF (new qualifications and
implications for QA processes, curriculum development , different
interpretations of mandate, scope of the sub-framework);
·
Setting standards for the GFETQSF (Norm referenced to
Criterion referenced use of IRT);
·
New accreditation processes roll-out; and
·
Budget requirements in the years going forward i.t.o.
grant.
6.1.8
Portfolio
Committee Observations
·
The Portfolio
Committee was unanimous in their appreciation and praise for Umalusi having
received yet another clean audit.
·
The Portfolio
Committee queried the accreditation of the National Senior Certificate and its
alignment with the various other assessments done there seemed to be very
little alignment.
·
The Portfolio
Committee queried how the research of Umalusi on English First Additional
Language tide-up with the Research by the Ministerial Committees (this was
highlighted as being at too low a level).
·
The Portfolio
Committee was interested in the views expressed by Umalusi on the issues of
competency tests for markers.
·
The Portfolio
Committee expressed concern over the readiness of some provinces for the
National Senior Certificate Examinations for 2014, especially in the Eastern
Cape and Limpopo who were reportedly experiencing challenges in respect of the
availability of resources, staff shortages and procurement of materials and
equipment. Umalusi had reported their findings to the Department of Basic
Education for interventions.
·
The Portfolio
Committee queried how the Standardisation Committee was composed, the criteria
for selection and qualification of those elected to the Committee.
·
The Portfolio
Committee was interested in measures to ensure the authenticity of
certification and qualifications of foreign educators. Umalusi assured the
Committee that such measures were in place.
·
The Portfolio
Committee was concerned over the decisions in respect of the withdrawal of the
provision of Language Compensation after the next examinations. There was a
view that Umalusi was in agreement with such a withdrawal whereas DBE felt
differently.
6.1.9
Portfolio
Committee Recommendations
·
Umalusi supplied the
Portfolio Committee with further information and detail on the National Senior
Certificate for Adults (NASCA), especially in respect of implementation and
administration.
·
Umalusi and the
Department needed to supply the Portfolio Committee with an update on the
challenges in the in the Eastern Cape and Limpopo in respect of the readiness
for the National Senior Certificate exams.
·
The Portfolio
Committee requested Umalusi to give the necessary assistance to parents to
avoid learners registering at non-accredited institutions and register learners
at accredited institutions. Members requested that Umalusi supply the Committee
with a detailed list of all private institutions registered with Umalusi.
·
Further engagements
between all stakeholders and the Portfolio Committee needed to be arranged to
discuss the decisions in respect of the withdrawal of the provision of Language
Compensation after the next examinations. There were divergent views amongst
all on the issue.
6.2 Education Labour Relations
Council (ELRC)
Education
Labour Relations Council (ELRC) Annual Report 2013/14
The strategic
outcome-oriented goals of the ELRC were as follows:
·
Goal 1
- Research and monitoring and
evaluation activities provided
an
evidence base for improved policies and policy implementation in basic
education. Here two issues were identified for research: Early Childhood and
Development (ECD) Practitioners and violence in South African schools.
·
Goal 2
- Equal importance was attached
to proactive dispute prevention and dispute resolution. This involved dispute
prevention committees/task teams. An example was the facilitation in the
Eastern Cape.
·
Goal 3
- Collective bargaining
processes maximised the scope of the parties shared interest. Unfortunately,
this goal was not achieved.
·
Goal 4
- Provide appropriate support
and training for all involved in dispute resolution and collective bargaining.
The ELRC provided training for Panellists and Dispute Resolution Practitioners.
·
Goal 5
- Sound communication
strategies, special initiatives and campaigns supported and complemented the
core activities of the Council e.g. new marketing strategies and improved
participation in education exhibitions
The ELRC spoke to the Service Delivery Environment with
an emphasis on the focus areas for 2014/15, which included Dispute Management
Services as well as Collective Bargaining Services. The Portfolio Committee was
appraised of the Organisational Environment as well as the Policy Development
and Legislative Changes. Regarding the performance information for the various
programmes, the Portfolio Committee was briefed on the strategic objectives,
planned targets for 2013/14 and actual achievement for 2013/14 as follows:
6.2.1
Dispute Management Services
In
respect of referrals, 776 disputes were received which were predominantly
related to ULP (Promotion and Appointments). Of these, 506 were in
jurisdiction, 249 out of jurisdiction and 21 determination through condonation.
The Portfolio Committee received an overview of the referrals per province with
the Eastern Cape having the most referrals (168) and the Northern Cape the
least (15). Ms Foca touched on the strategy to overcome areas of
underperformance as follows:
Increasing the panel of Conciliators, Arbitrators and Interpreters;
Having a stricter approach when dealing with postponement applications;
Allowing panelists to award costs in instances of frivolous postponement
requests; and
Continuous training of Dispute Resolution Practitioners and Panelists.
6.2.1.1
Provision of dispute resolution services
The
ELRC achieved 91 percent of its target for conciliation s finalised within 30
days from registration of a dispute. On resolution of ordinary arbitrations
within 180 days from when conciliation failed, the ELRC achieved 33 percent of
its target. The ELRC achieved 29 percent of its target in respect of resolution
on promotion arbitration within 120 days from the date that conciliation
failed.
6.2.1.2
Resolution of special disputes involving
children
The ELRC achieved 73 percent of its target in respect of resolution of
arbitration where a child was a victim within 120 days from the date of failed
conciliation.
6.2.1.3
Training and Development Services
The ELRC
was able to train and develop 231 Dispute Resolution Practitioners and
Commissioners.
6.2.2
Collective Bargaining Services
Four
provincial Collective Agreements were ratified as well as FETCBU C.A 5 of 2013.
The strategy to overcome areas of underperformance included the use of the
2014/15 Annual Performance Plan with a central focus to improve the quality of
teaching and learning in public schools.
6.2.2.1
Collective Bargaining
In
respect of the concluding of bargaining on identified matters of mutual
interest in public education, the ELRC achieved five out of 11.
6.2.2.2
Implementation of Collective
Agreements/Policies
- The ELRC did not achieve its target in
respect of training and advocacy on the implementation of collective
agreements.
6.2.2.3
Monitoring and Implementation of Collective
Agreements/Policies
Only one out of the targeted four was
achieved.
6.2.2.4
Research Services
The target for
research on evidence based teacher welfare and national development issues
identified was not achieved.
6.2.2.5
Information Sharing
Employee wellness programmes were introduced in all 9 provinces.
6.2.2.6
Integrated Quality Management System (IQMS)
and Performance Management Development Scheme (PMDS)
- A report on the
implementation of collective agreements was available for eight provinces
(Limpopo was not achieved).
6.2.2.7
Temporary Educators
- A
report on the extent to which temporary teachers were utilised was available
for all nine provinces.
6.2.3
Administration Services
The Finance and Administration Policy and Procedure Manual had been
approved with an improved information technology and communication system. The
ELRC also had new marketing strategies to create awareness of the Council and
its services. In respect of overcoming areas of underperformance, the
Council would continue soliciting assistance from the Auditor-General
and the Tax Ombudsman with regards to the SARS query. A Supply Chain Management
(SCM) unit will be established with the SCM Manager position being filled in
the new financial year. Further to this a recognition agreement would be
finalised in the 2014/15 financial year upon receipt of feedback from trade
union.
-
Maintaining and
improving the finance and administrative systems: No adverse impact on the
operations
-
Procuring goods and
services within policies and guidelines No major disruption to operations
-
Maintaining good
labour relations Zero grievances
-
Training and
development 100 percent competent
-
Ensuring a healthy
and safe work environment one injury reported
-
Providing reliable
information technology and communication systems no interruptions to the
system were evident.
6.2.4
Capital
Expenditure
No progress was made
relating to the refurbishment of the building due to the non-appointment of a
Project Manager. It was envisaged that the project would commence in the
2014/15 financial year.
6.2.5
Annual Financial
Statements
In respect of the Annual
Financial Statements, the ELRC had received an unqualified audit opinion.
Financial Performance:
|
2013/14
R 000
|
2012/13
R 000
|
2011/12
R 000
|
|
|
|
|
Total Income
|
49,360
|
49,321
|
49,692
|
|
|
|
|
Total Expenditure
|
46,835
|
43,904
|
47,937
|
|
|
|
|
Operating Surplus/(Deficit)
|
2,525
|
5,417
|
1,755
|
|
|
|
|
Interest Income
|
5,634
|
4,946
|
4,492
|
|
|
|
|
Surplus/(Deficit)
|
8,159
|
10,363
|
6,247
|
|
|
|
|
Levies Received:
2013/14
|
2012/13
|
2011/12
|
|
|
|
49,298
|
49,319
|
49,693
|
|
|
|
|
Number of Contributors
|
|
410,816
|
410,991
|
414,104
|
|
|
|
Expenditure Vs. Budget:
|
Actual 2013/14
|
Budget 2013/14
|
Difference 2013/14
|
Actual % 2013/14
|
|
|
|
|
|
Administration Services
|
15,672
|
20,188
|
(4,516)
|
78%
|
|
|
|
|
|
Dispute Management Services
|
7,931
|
9,201
|
(1,270)
|
86%
|
|
|
|
|
|
Collective Bargaining Services
|
23,231
|
29,211
|
(5,980)
|
80%
|
|
|
|
|
|
Total
|
46,834
|
58,600
|
(11,766)
|
80%
|
|
|
|
|
|
In conclusion, the ELRC
experienced an improvement in their overall performance in 2013/14 compared to the
2012/13 financial year. Collective Bargaining was an area of concern that the
ELRC would address in the following financial year.
6.2.6
Portfolio Committee
Observations
·
The Portfolio
Committee expressed gratitude that there had been labour peace during the year
under review and thanked ELRC for their contribution.
·
The Portfolio
Committee congratulated the ELRC on its unqualified audit report and indicated
that this was a marked improvement.
·
The Portfolio
Committee queried some of the targeted figures presented by ELRC and how they
were arrived at.
·
The Portfolio
Committee was concerned with the low number of educators evaluated on the Integrated
Quality Management System (IQMS) since this evaluation was compulsory for all
educators. Similarly for the Performance Management Development Scheme (PMDS).
·
The Portfolio
Committee showed a keen interest over the possible delisting of the ELRC as a
public entity and its impact on the work of the ELRC
·
The Portfolio
Committee was interested in the type of working relationship between the ELRC
and Labour Unions.
·
The Portfolio
Committee raised concerns regarding the fact that it took the ELRC a full year
to appoint a project manager in respect of the building refurbishments.
·
The Portfolio
Committee wanted to understand the ELRCs ideal funding model.
·
The Portfolio
Committee cautioned that AGSA raised the issue of recurring matters needing to
be dealt with by the ELRC, an issue that had been recurring for a number of
years.
·
The Portfolio
Committee was of the view that a major area of concern was the co-ordination
between the DBE and all entities on a host of programmes and projects.
6.2.7
Portfolio Committee Recommendations
·
The ELRC should
further engage with the Portfolio Committee on issues relating to the delisting
of the ELRC as a public entity and its subsequent impact on the work of the
ELRC, within three months of the adoption of this report by the National
Assembly.
·
The ELRC should
provide Parliament with Action Plans to address the A-Gs audit findings,
within three weeks of the adoption of this report by the National Assembly.
6.3 South African Council for
Educators (SACE)
South
African Council for Educators (SACE) Annual Report 2013/14
The South African Council for Educators (SACE) is
governed by a new Council, which was inaugurated on 15th August 2013 by the
Minister of Basic Education. SACE reported that the Council had functioned less
than optimally due to the austere budget caused by savings for the building
reserve fund. SACEs total revenue had been made up mainly of levies from
educators amounting to approximately R55 million and a special Government grant
of about R10 million. The Council registered 25 314 new educators during the
review period, leading to a total of 625 731 to date. SACE employed a stricter
vetting regime for incumbents to prevent usage of fraudulent documents and
avoid entry into the profession of individuals whose trust with learners was
questionable.
The Council received 582
complaints for the current year on top of a backlog of 180 from the previous
year. At least 343 cases had been finalised, leaving a balance of 419 cases to
be carried over (the low turnover was due to budget constraints).
The
Professional Development division had picked up momentum, signing over 40 000
school managers for participation in the Continuing Professional Teacher
Development (CPTD) system. The Council had endorsed 245 programmes (bringing
the total to 495). The Research
section has been
involved in the following areas:
International migration of teachers
in South Africa;
Principals and Deputy
Principals needs identification;
Teacher demand and supply;
Analysis of misconduct cases;
and
Resource centre and virtual
library.
SACE reported that due to the
vigilance of Council, The Executive Committee, Finance and Audit Committees
and efficient administration, SACEs finances were in order and spending had
been kept within the budget. The request for roll over was adequately motivated
and procurement was effected as per legislative requirements. All audit
findings and recommendations had been followed up.
6.3.1 Registration
SACE registered educators who were
professionally qualified by having acquired a minimum three year post matriculation
qualification (these are Primary Teachers Diploma and Secondary Teachers
Diploma).
S
tudents who were studying towards a teaching qualification
were allowed to register provisionally until they obtain their qualification.
To facilitate matters for them, SACE did an on-site registration at various
universities in their final year of study. Due to the complexity of education,
SACE found other professionals employed at schools as educators. SACE required
to register these under the conditional category. They were allowed to teach
for a period of three years, and were expected to study for a formal
qualification.
In respect of the r
egistration of educators who satisfied registration requirements
for professionally qualified educators, SACE was able to register 25 314
educators from a target of 32 000. SACE exceeded its target for the u
pdating of
registration data with 30 571 (the target being 20 000).
6.3.2 Professional
Ethics
All c
omplaints received were referred to the Ethics
Committee for direction. The Committee makes its recommendation and the
necessary steps followed. Should the Ethics Committee recommend that charges be
leveled against an educator, a summons is issued against the educator and a
hearing is scheduled to take place on the earliest possible date. Most of the
disciplinary hearings take the form of peer adjudication. All panel members
were trained on issues of law, disciplinary procedures and various other legal
processes to enable them to effectively carry out their duties. In the past
financial year, the division had seen a sharp increase in the number of
reported cases, especially in respect of educators who still apply corporal
punishment, abuse learners sexually and educators assaulting one another within
the school environment.
The divisions performance for
the year under review was severely and negatively affected by the financial
allocation for the year 2013/14. The financial situation prevented the division
from conducting and finalising as many disciplinary hearings as it had planned to
conduct. SACE had reviewed its disciplinary procedures to reduce the time frame
allocated to deal with and finalise cases as speedily as possible.
Concluded cases as measured against the number of cases
received for the year
-
The expected number
of cases to be finalised 450
-
The
actual number of cases finalised - 343
Educators and stakeholders to be workshopped on the code of professional
ethics
-
Expected number of educators and stakeholders
to be workshopped on the code of professional ethics - 35 000
-
Actual number of educators and stakeholders
workshopped on the code of professional ethics - 5747.
In respect of overcoming some of
the challenges faced, SACE indicated the following:
Non-finalisation of cases was the lack of cooperation by the parents of
abused learners;
This practice had impacted negatively on operations to such an extent that
each year SACE had a considerable number of sexual abuse cases that were being
carried over into the next financial year. This was not due to the fact that
they could not be closed, but rather that SACE hoped the cases were revived.
The battle against the abuse of learners could only be won when parents
took the responsibility to protect their children and to support the SACE
cause.
Many provincial departments still failed to report matters that had been
received, processed and/or finalised by them. SACE would continue to engage
with provincial departments of education to realise this purpose.
Another challenge was clearing the backlogs. SACE had trained a large
group of panelists to help with investigations and hearings. A four month
turnaround was SACEs goal.
6.3.3 Professional Development and Research
The CPTD Status Report (2012) raised some issues concerning the lack
of SACE offices in provinces. SACE developed a Provincial Presence Concept
which was approved by the Council for implementation. Nine SACE CPTD Provincial
Coordinator posts were advertised and six appointed by the end of the 2013/14 financial
year. The SACE CPTD Provincial Coordinators were working in collaboration with
Teacher development / Curriculum directorates in the Provincial Education
Departments in terms of implementing and monitoring the implementation of the
CPTD Management System.
In
respect of CPTD Orientation and sign-up for Principals and Deputy Principals
(Target: 40 747), at least
24 305 principals
and deputy principals signed-up for the CPTD Management system by the end of
the financial year.
Since 1
st
April, a number of processes were put in place to enhance the principals and
deputies participation rate in provinces. Professional Development Portfolio
(PDP) guidelines and templates for Principals and Deputy Principals were being
utilised.
A total
of I64 new provider approval applications were received during the 2013/14
financial year with 99 approved and 65 not approved. There was a higher
concentration of providers in Gauteng than in other provinces, with fewer
providers as far as the provision for teacher development is concerned. SACE
introduced a third category of emerging providers. As a way of strengthening
advocacy and provider support, provider sessions were initiated and two
provider forums were held in Gauteng and Limpopo provinces by the end of the
financial year.
Other
CPTD system key achievements for the financial year included:
·
CPTD Management System Capacity building / information sharing sessions
for 998 office-based educators responsible for supporting educators at all
levels;
·
Enhanced working relations between SACE and the
PEDs, including stakeholders, on the implementation of the CPTD Management
System;
·
A functional CPTD Information System with a self-service
web portal for teachers, schools, providers, and evaluators; and
·
Instructional DVD for the CPTD Self-Service Web
Portal
·
The administration of 12 200 principals and deputy principals needs
identification survey through the CPTD Orientation and sign-up sessions
6.3.4 Stakeholder
Relations -
In the
past 18 months SACE was to cover most of the provinces and managed to
participate in a number of national and international stakeholder events.
Stakeholders included Unions, the DBE and other education-related organisations.
SACE
was an affiliate member of the African Forum for Teacher Regulatory Authorities
(AFTRA) on the continent and South Africa was the only country in the SADC
region which had a fully established and operational Council.
The
Council would explore the opportunities to broaden its national footprint in
the future to ensure that more educators and other stakeholders can be reached.
The implementation of this intention would be determined by the availability of
the necessary capabilities (both human and financial).
6.3.5 Financial
Report
Statements fairly
represented the financial position of SACE and the Council received an
unqualified report. Underperformance was observed on case management and
research objectives. SACE had the necessary corrective measures in place for
the current challenges.
SACE total assets increased
by 15 percent with cash equivalents increasing by 43 percent (building reserve
fund). Included in the current liabilities were R4.7million differed government
subsidy, by agreement. Revenue increased by 6 percent (registration fees)
SACE increased registration related fees for SA educators from R60 to R200,
Foreign educators from R120 to R400 and the renewal of provisional certificates
from R0 to R50. The property in Visagie Street Pretoria was valued at R10.5 million
and sold for R9 million, hence a loss on the sale of a non-current asset of
R1.5 million. The planned surplus of R13 million was for the purchase of the
building. The total equity increased by 16 percent to R73.6 million. The
building reserve fund growth was 55 percent (approved surplus from the previous
year and planned current year transfers). Net cash from operations decreased by
38 percent with an increase in cash paid to suppliers. Additional plant and
equipment was R0.6 million which represented a 67 percent decrease. Total funds
at year end was R71 million (43 percent increase).
6.3.6 Portfolio Committee
Observations
·
The Portfolio
Committee congratulated SACE on their unqualified audit report but cautioned
the Council in respect of the recurring areas of emphasis that needed
attention.
·
The Portfolio
Committee was concerned that all provinces needed to receive the necessary
outreach.
·
The Portfolio
Committee was further concerned over the withdrawal of various cases since this
meant that offending teachers were slipping back into the system.
·
The Portfolio
Committee was concerned over the verification and authenticity of
qualifications of foreign educators. SACE needed to address the matter
urgently.
·
The Portfolio
Committee sought further information and understanding of the utilisation and
monitoring of Peer Educators.
·
The Portfolio
Committee raised a concern that although SACE was able to supply figures for
the number of registered educators in the system, they were unable to give an
accurate figure for the number of educators, registered and non-registered, in
the schooling system in the country. This remained SACEs core function.
·
The Portfolio
Committee also sought clarity on the sale and purchase of the SACE buildings. The
Portfolio Committee was of the view that a huge loss was incurred in the sale
of the old building.
·
The Portfolio
Committee also raised concerns over the shortage of staff and the necessary
funding to implement the necessary process of CPTD. The Portfolio Committee
queried as to whether SACE had considered finding alternate sources of funding.
·
The Portfolio
Committee questioned the activities of World Teachers Day and whether SACE
would continue with these celebrations in the future.
6.3.7 Portfolio Committee
Recommendations
·
That SACE ensured
that they were more visible in all nine provinces.
·
SACE ensured that all
educators were captured and registered at the entry-level.
·
In terms of CPTD,
that SACE ensured the necessary emphasis on fast-tracking and enhancement of
monitoring of CPTD.
·
SACE should
strengthen coordination with the Department of Basic Education to ensure that all
appointments to the education sector are done in conjunction with the
registration at SACE.
7. Portfolio Committee Observations
7.1 Department of Basic Education
7.1.1
Technical Issues
·
The Portfolio Committee welcomes the quality of
information reported in the Annual Report. However, the Committee remains
concerned that important sectoral data relating to teacher supply, utilisation
and demand that captures factors such as subjects taught, school phases and
geographical areas is still unreported, despite the Committees request in the
previous financial year. The Committee hopes that once teacher profiling is
finalized such information will be reported in future Annual Reports, to enable
oversight. The Portfolio Committee further advises that the Department reports
on quality performance indicators on learning outcomes in the Annual Report.
7.1.2
Governance issues
·
The Portfolio Committee commends
the Department on continuing to receive an unqualified audit opinion in
relation to the management of their finances though they would like to see increased
focus on implementing Action Plans to pave the way for the achievement of a
clean audit. The Portfolio Committee is concerned with a number of shortcomings
as alluded to by the Auditor-General. Specific concerns include the material
under-spending of R560 million in respect of the ASIDI programme; persistent
restatement of corresponding figures; reliability of reported information in
respect of Programmes 2, 3, 4 and 5; as well as compliance
issues around:
internal control regarding performance management; annual financial statements;
expenditure management; transfer payments; procurement and contract management
and human resource management.
·
The Committee notes from the Departments
first 2013/14 Quarterly Report that the Department has developed an Improvement
Plan to strengthen areas of weakness identified in the MPAT assessment for
2013/14 and will require quarterly reports on progress in implementing the
Action Plan.
7.1.3
Funding issues
The Portfolio Committee acknowledges
the need for fiscal
prudence in public spending and appreciates the directive for departments to
reprioritise their spending within the existing expenditure ceiling. The
Committee notes that, although the Department is committed to reprioritising
its existing allocations to accelerate the provision of the ICT in schools, the
Department hinted that there may be a need for additional funding for this
anchor programme over the medium term, which will require support from the National
Treasury.
The Portfolio Committee believes that this programme is vital to improve Basic
Education, particularly in rural areas.
7.1.4
Performance
by Programme
a)
Programme 1: Administration
·
The Portfolio Committee notes work reported to be in progress to improve
the usefulness and reliability of information in respect of predetermined
objectives, in response to audit findings of the 2012/13 financial year. These
include checking by Branches and verifying reported information in terms of
source documentation on a quarterly basis, as well as conducting Branch reviews
on a quarterly basis. The Committee believes that the Department is in the
right direction but urges it to intensify the implementation of these
strategies and others to improve the reliability of performance information.
The Committee further expects the Department to effectively implement action
plans designed to address underspending and compliance issues highlighted
above.
·
The Portfolio Committee welcomes strides made
in alleviating capacity constraints through the filling of posts at Senior
Management Service (SMS) level, which resulted in the reduction of vacancies
from 17 (18.7) per cent on 30 September 2013 to 11 (12.1) per cent as at 31
March 2014, as reported in the Annual Report. The Committee further appreciates
that the Department made eight further appointments at key Senior Management
level, as reported in the Departments first 2014/15 quarterly report and urges
the Department to fast track the filling of all vacancies at this vital level
to ensure that the Departments mandate is effectively carried out.
·
The Portfolio
Committee raised concerns regarding the slow responses from the DBE and PEDs in
respect of recommendations from the Portfolio Committee after oversight visits.
·
Members of the
Portfolio Committee request that those dealing with the issues around the
Ministers Replies
should
ensure
that these replies are comprehensive and updated.
b)
Programme
2: Curriculum Policy, Support and Monitoring
·
Once again
the Portfolio
Committee appreciates improvements/progress made in relation to the Matric
results which reached a peak of 78.2 percent in the 2013 end of the year
results and 80.8 per cent after supplementary examinations. However, the
Committee expects to see significant improvements in the quality of passes in
the gateway subjects of Mathematics and Physical science at matric, as well as in
literacy and numeracy in
the Intermediate
Phase and Senior Phase, particularly Grade 9, in line with developmental
imperatives of the National Development Plan.
·
The Committee
appreciates the involvement of the private sector and civil society in the
provision of school E-learning and ICT infrastructure and would like to see
more entities contributing to the accelerated provision of this crucial
priority programme.
·
The Committee remains
concerned with the low level of the retrieval of textbooks in many schools, as
observed during the oversight visit to the Eastern Cape.
c)
Programme
3: Teachers, Education Human Resources and Institutional Development
·
Although the
Committee appreciates that the issue of laptops for educators is now receiving
attention from National Treasury, the Committee is concerned that this issue
has been on the table for a long period. However, the Committee appreciates
that plans are underway to turn the laptop initiative into an effective tool
for entrenching Information and Communication Technology (ICT) in teaching and
learning. The Committee urges the parties involved to fast track the
implementation of this initiative.
Members also queried the allocation per student i.r.o the Funza Lushaka
Bursaries, which seems excessive. The Committee urges the Department to
investigate if there is value for money.
·
The Portfolio Committee notes once
again that while strides are being made in ensuring adequate supply of
teachers,
the system is not meeting the demand.
There is a need for improved coordination with the Department of Higher
Education and Training to ensure an adequate supply of suitably qualified
teachers.
d)
Programme 4: Planning, Information and
Assessment
·
Although
the Portfolio Committee notes notable improvements in spending and service
delivery regarding the ASIDI programme since 2011, Members remain concerned
that the programme still experiences under-spending, including in the first
quarter of the new financial year (2014/15), where a slow submission of
invoices by implementing agencies was reported. Given that some of the
challenges facing infrastructure delivery relate to the poor performance of
some contractors and implementing agents, the Committee agrees with the A-G
that oversight during all phases of the infrastructure delivery process should
be improved to avoid a negative impact on future audit outcomes and delivery. In
addition, the Committee agrees with the A-G that it is necessary to ensure that
the resources required to perform such an oversight function, particularly with
regard to compliance by implementing agents, are made available. The Committee
further urges the Department to explore
a new system in respect of the appointment of building contractors, as
well as to conduct an in-depth investigation of contractors track-records.
This is particularly important since the infrastructure programme is expected
to intensify in line with government priorities in future, including the need
to replace all inappropriate school structures by 2016/17.
·
The Committee is concerned with the slow pace in resolving the post
provisioning challenges experienced in the Eastern Cape, which affects teaching
and learning.
·
The Committee remains concerned that not all deserving
learners are benefiting from learner transport initiatives and urged that the
Department of Basic Education strengthen collaboration with the Department of
Transport to speedily resolve this challenge.
·
The Committee notes that the President during
the 2014 State of the Nation Address committed to the delivery of furniture to
Eastern Cape schools experiencing a shortage, by the middle of August 2014 and
requests a progress report in this regard.
e)
Programme
5: Educational Enrichment Services
·
Members are concerned
with the lack of space and time at schools for sporting facilities and activities
for various sporting codes.
·
Members raised a concern
in respect of the development of ECD practitioners in the various districts.
There seemed to be a limit to the amount of practitioners being developed per
district.
·
The Committee is concerned regarding the
lower than expected expenditure on the conditional grants of HIV and AIDS (84
per cent) and the Technical Secondary Schools Recapitalisation (88 per cent) attributed
to Limpopo and KwaZulu-Natal provinces and urges the Department to take the
necessary steps to support provinces to improve spending over these conditional
grants.
·
Members are concerned
with the protection and safety of whistle-blowers and how the Department assists
in their safe-guarding.
·
Members raised
concerns in respect of the management of the National School Nutrition
Programme in certain areas.
·
The Committee remains
concerned with the level of district support to schools in certain areas.
·
The Committee remains concerned
about the effectiveness and efficiency of the Quality Learning and Teaching
Campaign (QLTC) at all levels of the system.
8.
Portfolio Committee Recommendations
Based on the observations made above, the
Committee requests that the Minister ensures that the Department of Basic
Education considers the following recommendations:
·
Provide Parliament with Action Plans to
address the A-Gs audit findings, within three weeks of the adoption of this
report by the National Assembly. The Department is also requested to report
quarterly on progress made. The Action Plans should include a focus on how the
Department will address challenges around:
o
Material underspending of the ASIDI programme;
o
Restatement of corresponding figures;
o
Supply Chain Management; and
o
Material non-compliance with
legislation in respect of the issues raised by the A-G.
·
Provide Parliament with a remedial programme to effect improvement on
the gaps identified by the Management Performance Assessment Tool (MPAT)
conducted by the Department of Performance Monitoring and Evaluation for
2013/14, within two weeks of the adoption of this report. The Department is
also requested to report quarterly on progress made.
·
Ensure that the long-standing challenge
regarding the reliability and veracity of data should be resolved, as well as
ensuring that accurate teacher profiles would be completed in all provinces by the
set target of 30 November 2014 in order to enable effective human resource
planning, recruitment, deployment and utilization, as well as to enable
Parliament to conduct its oversight effectively. The Department is requested to
give a progress report in this regard on its 2014/15 second and third Quarterly
Reports.
·
Provide Parliament within two weeks of the
adoption of this report, with details of
critical areas requiring additional funding in the medium term to fulfil
its priorities in line with the National Development Plan.
·
Take the necessary steps to strengthen its
monitoring systems, ensuring that they include all areas of concurrency.
·
Report in future Annual Reports on important sectoral
data relating to teacher supply, utilisation and demand that capture factors
such as subjects they teach, school phases and geographical areas, to enable
Parliament to monitor performance more effectively.
·
Together with Provincial Education Departments,
improve
efficiency in conducting processes linked to
the appointment of educators, including the redeployment of educators
additional to the post establishments in schools, the conversion of temporary
appointments and the placement of Funza Lushaka graduates.
·
Improve service delivery and spending in respect
of ASIDI to ensure that all inappropriate school structures are replaced by
2016/17 in line with the National Development Plan imperatives.
·
Ensure that the National School Nutrition
Programme (NSNP) is well managed.
·
Together with provincial education
departments, continue to invest, focus on and refine programmes on Inclusive
Education, to facilitate progress in this critical area that continues to pose
a challenge.
·
Together with the Department of Higher
Education and Training, ensure that there is an adequate supply of competent teachers.
·
Intensify efforts to support affected
provinces to resolve post provisioning challenges, particularly the Eastern
Cape.
·
Ensure that needy learners have access to
Special Schools. Teachers in these schools should be adequately trained and
developed.
·
Continue to accelerate the implementation of
e-Education, including ICT Infrastructure at schools as a means to improve
learner success.
·
Continue to strengthen the communication
strategy of the Department, in order to project their image in a positive light.
·
Strengthen monitoring of Provincial Education
Departments to ensure that they implement policies regarding the retrieval of
textbooks in schools.
·
Together with Provincial
Education Departments, continue to strengthen support to Districts and circuits
to ensure that they are accountable and perform their functions effectively.
·
Together with the Department of Transport and
Provincial Education Departments, take steps to ensure that all deserving
learners have access to learner transport.
·
Provide Parliament with a progress report on
the delivery of furniture to Eastern Cape schools experiencing a shortage, in
the second Quarterly Report.
·
Together with Provincial Education
Departments, take steps to ensure that there is time and space
at schools for sporting facilities and activities for various sporting
codes.
9.
Appreciation
The Portfolio Committee would like to thank the Department of Basic
Education and statutory
bodies for participation
and co-operation in these reviews. The Portfolio Committee also wishes
to
thank all parties
concerned for the progress made thus far and
conveys its
appreciation to all
Members and
staff of the Portfolio Committee.
Report to be considered
Documents
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