Study on competency-based education and training in vocational education and training in Namibia

Transcription

1 Study on competency-based education and training in vocational education and training in Namibia Inception Report July 2014 RFP2013/03 CBET STUDY - INCEPTION REPORT 1

2 CONTENTS Glossary Introduction Deliverables Current status of CBET implementation in Namibia CBET implementation in comparable VET systems South Africa Mauritius Botswana New Zealand Research design for analysis of the operation of CBET system in Namibia Proposed action plan Appendix 1: List of interviewees RFP2013/03 CBET STUDY - INCEPTION REPORT 2

3 Glossary ABET BNCQF BOTA BQA BTEP BURS CATS CBET CEO CIF CMR CoM COSDEC ECN ETSIP ETSSP FET GIZ (German) HPCNA HRDC ICT ISC ITAC ITP MESP MoE MoESD MoLHA MQA MQF MTTC NAMCOL NATED NCC NCCI NCSA NSCA Adult Basic Education and Training Botswana National Credit and Qualifications Framework Botswana Training Authority Botswana Qualifications Authority Botswana Technical Education Programme Botswana Unified Revenue Service Credit Accumulation and Transfer System Competency Based Education and Training Chief Executive Officer Construction Industry Federation Consent and Moderation Requirements Chamber of Mines Community Skills Development Centre Engineering Council of Namibia Education and Training Sector Improvement Programme Education and Training Sector Support Plan Further Education and Training German Agency for International Cooperation Health Professional Council of Namibia Human Resource Development Council Information Communication Technology Industry Skills Committee Industry Training Advisory Committees Institutes of Technology and Polytechnics Ministry of Education Strategic Plan Ministry of Education Ministry of Education and Skills Development Ministry of Labour and Home Affairs Mauritius Qualifications Authority Mauritius Qualifications Framework Madirelo Training and Testing Centre Namibian College of Open Learning National Technical Education National Craft Certificate Namibia Chamber of Commerce and Industry Namibia Construction Skills Academy Namibia Small Contractors Association RFP2013/03 CBET STUDY - INCEPTION REPORT 3

4 NDP NEF NGO NICE NIED NIMT NMA NNTO NPC NQA NTA NTB NTTC NZQA PIPS PQA ProVET PTE QA QC QCTO RNPE RPL RTTU SACC SAQA SETA TEC TEO TWG UNAM VET VTF WVTC National Development Plan Namibian Employers Federation Non Government Organisation Namibian Institute of Culinary Education National Institute for Educational Development Namibian Institute of Mining and Technology Namibian Manufacturers Association Namibia National Training Organisation National Planning Commission Namibia Qualifications Authority Namibia Training Authority Namibia Tourism Board National Trade Testing and Certification Centre New Zealand Qualifications Authority Personal and Interpersonal Skills Programme Quality Assurance Promotion of Vocational Education and Training Private Training Establishments Quality Assurance Quality Council Quality Council for Trades and Occupations Revised National Policy on Education Recognition of Prior Learning Roads Technical Training Unit Standards, Assessment and Certification Council South African Qualifications Authority Sector Education and Training Authority Tertiary Education Commission Tertiary Education Organisations Technical Working Group University of Namibia Vocational Education and Training Vocational training Fund Windhoek Vocational Training Centre RFP2013/03 CBET STUDY - INCEPTION REPORT 4

5 1 Introduction The Namibia Training Authority [NTA] has commissioned this study to inform the future development of competency-based education and training [CBET] in the technical and vocational education and training [VET] sector in Namibia. It is envisaged that the study will: Collect and analyse data on the operation of competence-based education and training in the VET system in Namibia and other countries in the region and internationally, and Use the findings to inform the development of a model and implementation plan for CBET that best fits the VET system in Namibia. The Project Team has prepared this Inception Report to provide a record of the initial work undertaken to inform the development of the research design for the analysis of the operation of the CBET system in Namibia [Section 5] and the proposed project action plan [Section 6]. This involved: the conduct of a limited number of interviews with key stakeholder interviews [Appendix 1], an initial assessment of CBET implementation in Namibia, including the preparation of three short case studies to illustrate the different responses to CBET implementation in Namibia [Section 3], and the review of CBET implementation in three comparable countries in the region, namely Botswana, South Africa and Mauritius as well as New Zealand 1 [Section 4]. While a range of information and viewpoints were gathered through this initial activity, its purpose was to bring the Project Team up to date with developments in Namibia with regard to CBET implementation in the VET sector as well as inform the development of the research design and project action plan. As detailed in the action plan, it is proposed that a more comprehensive review of the implementation of CBET in Namibia, which includes consultation with a wider range of stakeholders, will be undertaken during the second stage of the project. This will be followed by the development of a draft CBET model [Stage 3], a CBET implementation plan [Stage 4], and the design of a communication strategy [Stage 5]. It is envisaged that the NTA will review this Inception Report and endorse the proposed study design and action plan by mid July It is expected that the study will be undertaken over a period of seven months. 1 New Zealand was selected as the National Qualifications Framework in Namibia is derived from the New Zealand framework and it provides example of a mature best practice national qualifications framework RFP2013/03 CBET STUDY - INCEPTION REPORT 5

6 2 Deliverables This Inception Report including the proposed action plan is the first deliverable for this project. Following the endorsement of the action plan by the NTA, the other key deliverables are expected to be: A comprehensive research report that amongst other thing details: Research methodology Findings and conclusions Responses to research questions CBET model for VET in Namibia with justification how the model will improve on the CBET situation in Namibia Implementation master plan for CBET Presentation of the draft report and master plan to the NTA Presentation to decision makers on the model and the implementation plan Monthly progress reports or meetings. RFP2013/03 CBET STUDY - INCEPTION REPORT 6

7 3 Current status of CBET implementation in Namibia The Namibia Training Authority s strategic plan for identifies the development of a blue print for CBET implementation by March 2015 as a key priority. It also commits to implementing the outcomes of the CBET review, which forms the focus of this study, and increasing the number of training providers exclusively applying the NTA CBET model. The NTA s approach to competency-based training is clearly aligned with the Namibia Qualifications Framework. The outcomes to be achieved are expressed as unit standards. These standards are registered, credit rated and packaged to form nationally recognisd qualifications that are registered by the Namibia Qualifications Authority and listed on the Namibia Qualifications Framework. The NTA registers providers of these qualifications and encourages them to seek accreditation with the Namibia Qualifications Authority which is responsible for quality assuring all persons, institutions and organisations providing education and courses of instruction or training in Namibia. As well as working with the relevant Industry Skills Committees to develop nationally recognised unit standards and qualifications, the NTA manages the national assessment arrangements for the VET system and develops a range of support products to facilitate implementation of the unit standards based qualifications. These support materials include national curriculum documents that reflect the outcomes expressed in registered unit standards and training manuals for learners. These materials are supplied to learners and training organisations at low cost. To date the NTA, working with the Industry Skills Committees, has developed a range of unit standards and qualifications up to level 4 on the Namibia Qualifications Framework in areas such as tourism and hospitality, automotive, construction, hairdressing, office administration, and air conditioning and refrigeration. The NTA has also worked with its industry partners to develop unit standards and qualifications in industries such as road construction and maintenance. In addition, the NTA is also working with its development partners, such as GIZ, which through the ProVET project is developing unit standards and qualifications in agriculture, diesel mechanics, fire fighting and occupational health and safety. While the development of unit standards and qualifications has not been as rapid as expected and there are many occupations and industries that do not have unit standards and qualifications, considerable progress has been made. One indicator of progress is that unit standards and qualifications are available for most occupations in which training is provided by the nation s vocational training centres. This means that all seven (7) government owned vocational training centres could be offering unit standards based qualifications in virtually all programme areas. RFP2013/03 CBET STUDY - INCEPTION REPORT 7

8 However to date only two vocational training centres, Rundu and Zambezi Vocational Training Centres, have attained NQA accreditation and are offering unit standard based qualifications. The other centres, as illustrated in Case Study 1: Windhoek Vocational Training Centre - WVTC, have either experienced difficulties in implementing the NTA CBET system or have decided against implementation. Case study 1: Windhoek Vocational Training Centre WVTC WVTC is a semi autonomous training provider that is governed by the Namibia National Training Organisation Board [NNTO]. The Board comprises representatives of private and public organisations. The Centre offers full-time training in 14 occupational areas within the mechanical and electrical engineering, building construction and business services sectors. In 2001, with support from the GIZ, WVTC piloted the development of CBET material and established a CBET Implementation Unit. Then in 2008, WVTC commenced a pilot delivery of the new unit standards based qualifications developed by the Namibia Training Authority in Bricklaying & Plastering, Joinery & Cabinetmaking, Plumbing & Pipe-fitting, and Automotive Mechanics. WVTC has decided to offer the new NTA qualifications in Office Administration. However the Centre s management decided to stop delivery of the other qualifications. The reasons cited for this include: Management, trainers and trainees felt unprepared for the implementation of the new training arrangements. The unit standard based qualifications were perceived as being of a lower standard than the courses they replaced. There was a lack of training materials and technical support available to assist the Centre with implementation of the new unit standards based qualifications. The lack of articulation arrangements with higher education institutions, such as the Polytechnic of Namibia, due to the absence of discrete English, Mathematics and Science subjects in the unit standard based qualifications. The increased cost of training associated with the unit standards based qualifications. The lack of flexibility in the assessment arrangements in the unit standards based qualifications and the delays experienced in receiving certification from the NTA. While providers, such as Windhoek VTC, have experienced difficulties in implementing the NTA CBET model, others have not. The Namibian Institute for Culinary Education [NICE], a leading restaurant and training facility in Windhoek [Case study 2] has pioneered the training of hospitality staff using the registered unit standards and qualifications for hospitality. Likewise, the Roads Authority, through the Roads Technical Training Unit [RTTU], with funding support from donors has developed unit standards based qualifications and a workplace training delivery model for the entire Roads Construction sector. These materials have been used to train Road Workers, including a significant number of small contractors, by the Namibia Construction Skills Academy NCSA [Case study 3]. The NCSA also used these materials when it took part in the NTA s RPL pilot project that was conducted earlier this year. RFP2013/03 CBET STUDY - INCEPTION REPORT 8

9 Case study 2: Namibian Institute for Culinary Education NICE NICE is an accredited training centre linked to a commercial restaurant that is located in the heart of Windhoek. Currently, NICE works with the Wolwedans Desert Academy to provide a training programme that covers both lodge and city based hospitality and restaurant operations. This unit standards based programme leads to the award of the National Vocational Certificate in Hospitality and Tourism (Level 2 - Accommodation service and Food and Beverage Services) and (Level 3 Core Commercial Cookery Skills). Trainees seeking to enter this programme must hold a Grade 10 certificate and be proficient in English language communication skills. NICE has established a selection process for the programme. This involves a face-to-face interview, a practical demonstration of communication skills and a basic project presentation. The selection process runs over a period of 3 months. The training programme involves 28 months of full-time study. Practical training is conducted on-site, in the kitchen, bar and restaurant, under the guidance of professional chefs and experienced managers. In addition, a teacher facilitates theory classes based on the NTA curriculum. Tuition is given on a 70:30 ratio with the majority of time being allotted to practical training. To date, 270 trainees have participated in the programme with about 90% of graduates gaining employment in the industry. While NICE has successfully implemented the new unit standards based qualifications, the Training Manager believes that the following matters need to be addressed: Stakeholders need to be better informed about the CBET system in order to actively contribute towards the educational outcomes of vocational training. Improved guidance is required on NTA and NQA processes such as provider registration and accreditation. Information for industry and learners on the NTA CBET system needs to be more widely available. CBET implementation processes need to be carefully planned. As the NTA s capacity is limited it should not attempt to implement CBET in all industries at the same time. The NTA assessment system needs to be more flexible. Trainees should not have to wait for scheduled NTA assessments. Consideration should be given to introducing assessment centres and workplace assessment arrangements. The assessment criteria at Level 2, do not meet industry requirements, as trainees are not equipped for employment in the industry after acquiring Level 2 certification. The process for finalising assessment instruments/tools should be guided by timelines, which cover the entire process from formulation, to moderation (by external examiners) and to administration of assessment instruments. The Industry Skills Committee does not adequately communicate with education centres and industry stakeholders. To maximise the impact of the ISC, more effort should be made to ensure open lines of communication between the ISC, education centres and members of industry. RFP2013/03 CBET STUDY - INCEPTION REPORT 9

10 Case study 3: Namibia Construction Skills Academy NCSA Since 2005, the NCSA has been engaged in skills development and capacity building projects in the construction and road construction industries in Namibia. NCSA is registered with the NTA and accredited by the NQA. NCSA offers a range of training solutions including workplace training, small contractor development programmes, on-the-job mentorship and support programmes for entrepreneurs. The target groups include school leavers and general workers, as well as supervisors and unskilled, semi-skilled and skilled workers and operators in the construction industry. NCSA has developed a mobile training concept. This involves negotiating with companies to provide training in the workplace using the facilities of the participating companies. This approach ensures learners are work ready, maximises industry participation and reduces the cost of training. The training programmes offered by NCSA use best-practice CBET principles and are based on unit standards. Learners participate in structured training programmes that include theory sessions, practical skills development activities, training in real work contexts, and on-the-job coaching and mentoring. Assessment is conducted in the workplace, occurs soon after training has taken place and is based on individual or groups of unit standards. The NCSA maintains its own register of assessment results and issues internal awards to successful candidates. The NCSA had also been actively involved in the RPL pilot run initiated by the NTA. While NCSA has successfully implemented training courses based on the new unit standards, the Training Manager believes that the following matters need to be addressed: Clear standards need to be set for trainers in the construction and road construction industries. They should have a strong technical background with 10 years of industrial experience, including 3 5 years of training experience. Trainer requirements should be set by ISC for each industry sector and the NTA should offer recognised train-the-trainer programmes to build the pool of skilled trainers in Namibia. Funding levels for training in the Construction and Road Construction industries should be revised as the cost of training in these industries is very high. The certificates issued to leaners should indicate the scope or type of equipment or /machinery the learner was assessed on. The current NTA assessment system is to rigid and consideration should be given to introducing assessment centres. The NTA s verification, expansion, and re-registration processes are too cumbersome and should be revised. The Industry Skills Committee does not adequately address the needs of training providers.! RFP2013/03 CBET STUDY - INCEPTION REPORT 10

11 While there are a number of examples of successful implementation of the unit standard based qualifications, there are very few situations where the full NTA CBET model, which envisages the use of recognition of prior learning, self paced delivery, flexible entry and exit to qualifications, and assessment on demand, is being implemented. Nevertheless the recent piloting of the NTA s recognition of prior learning model in the hospitality and road construction industries suggests that key components of the NTA CBET model are taking shape. Preliminary discussions held with key stakeholders [see Appendix 1] as part of the preparation of this report identified a number of factors that may be adversely impacting on the implementation of the NTA CBET model. These include: A lack of leadership skills in VET institutions which means that principals, managers and heads of department are not well equipped to apply the change management strategies needed to support an innovation such as the introduction of CBET. The complexity of the registration and accreditation arrangements administered by the NTA and NQA, respectively, is a barrier to training providers gaining registration and accreditation to provide the unit standards based qualifications. Inflexibility in the national assessment arrangements leading to delays in students being assessed and issued with certificates. The absence of qualifications pathways that link schools, VET and higher education and which provide progression routes for learners discourages providers from offering the unit standard based qualifications. The existence of legacy training and assessment models, such as the former NTTC and South African NATED courses that act as a barrier to the take up of unit standard based qualifications. Trainer quality particularly in relation to the lack of higher-level technical skills means that many providers are unable to offer the new unit standards based qualifications. The lack of fit for purpose training and assessment products to support the implementation of the NTA CBET model. The absence of a systematic planned implementation strategy for the NTA CBET model. The lack of registered unit standards and qualifications in a range of industry and occupational areas has meant that some providers are unable to switch to the new system. These issues are not unique to Namibia. The case studies of CBET implementation in New Zealand, Mauritius, Botswana and South Africa, in the next section of this report, highlight the challenges confronting other countries engaged in implementing competency-based training. As well as identifying the key issues associated with CBET implementation, the case studies focus on the lessons learnt in these countries and raise a number of ideas that could be applied in the Namibian context. RFP2013/03 CBET STUDY - INCEPTION REPORT 11

12 4 CBET implementation in comparable VET systems Competency-based education and training systems are operating in many countries. In some places, such as Scotland, New Zealand and Australia, the systems have been in place for some time, whereas other countries are just beginning to introduce CBET systems as part of their attempts to strengthen their technical and vocational education sectors, make them more responsive to industry and community needs, and improve access to and participation in vocational training. The ensuing section of this report provides an overview of the operation of competency-based education and training in a mature best practice system, namely New Zealand and a number of comparable systems to Namibia, namely South Africa, Mauritius and Botswana. The intention is to highlight the reasons for the introduction of competency-based training and education in each country, consider the challenges that have been associated with the introduction of this approach to vocational training, and to identify any lessons that have been gained from the experience in these countries that may be relevant to Namibia. The key lessons learnt from the four case studies that may have relevance for Namibia are summarised in a chart that appears at the end of this section of the report. 4.1 South Africa The National Qualifications Framework in South Africa, which was established in 1995, is generally regarded as one of the more complex qualifications frameworks. Over its nearly twenty-year history, it has undergone a number of changes in response to concerns from stakeholders about the design and operation of the Framework. In the lead up to the latest review, a key concern was the number of bodies responsible for standards generation and quality assurance and the seemingly unnecessary proliferation of unit standards and qualifications. Critics argued that this led to confusion and duplication of work. In addition, there was concern that the one-size-fits-all approach to qualification development in the Framework did not recognise the different approaches and practices within the education, training and skills development sectors. A further concern was the lack of effective qualifications pathways and how this worked against learners seeking to move within and across the school, VET and higher education sectors. These concerns were underpinned by a broader dissatisfaction with the quality of some of the new standards based vocational qualifications. This in part led to the decision in 2009 to halt the phasing out of the NATED courses that were offered by the Further Education and Training Colleges. RFP2013/03 CBET STUDY - INCEPTION REPORT 12

13 In response to this situation, the Minister of Education and Labour agreed to a significant reform of the framework which made provision for the establishment of three Quality Councils (QCs) to manage three sub-frameworks, one for Higher Education Qualifications, one for General and Further Education Qualifications and one for Trades and Occupations. These three sub-frameworks now comprise the unified National Qualifications Framework (NQF) and are managed in collaboration with the South African Qualifications Authority (SAQA). According to the White Paper For Post School Education and Training, that was released in 2013, each sub-framework will have its own nomenclature for its qualification types. There will be a concerted effort to control the proliferation of qualifications. While some overlap and duplication is unavoidable, the registration of large numbers of qualifications that are not used by providers and learners must be avoided. RFP2013/03 CBET STUDY - INCEPTION REPORT 13

14 CBET system design The National Qualifications Framework As illustrated below, the National Qualifications Framework in South Africa, which is coordinated by SAQA, comprises ten levels and three sub-frameworks. A Quality Council manages each sub-framework. These are: Umalusi that oversees the General and Further Education and Training subframework The Council on Higher Education that oversees the Higher Education subframework The Quality Council for Trades and Occupations that oversees the Trades and Occupations sub-framework. National Qualifications Framework Level Sub-Framework and Qualification Types 10 Doctoral Degree Doctoral Degree [Professional] 9 Master s Degree Master s Degree [Professional] 8 Bachelor Honours Degree Postgraduate Diploma Bachelor s Degree 7 Bachelor s Degree Advanced Diploma 6 Diploma Advanced certificate Occupational Level [Level 6] 5 Higher Certificate Occupational Level [Level 5] 4 National Certificate Occupational Level [Level 4] 3 Intermediate Certificate Occupational Level [Level 3] 2 Elementary Certificate Occupational Level [Level 2] 1 General certificate Occupational Level [Level 1] Sub-framework Colour Higher Education Qualifications General and Further Education and Training Qualifications Occupational Qualifications Note: The Trades and Occupations sub-framework includes provision for qualifications up to level 10 but the Quality Council is currently focused on development up to level 6. RFP2013/03 CBET STUDY - INCEPTION REPORT 14

15 Standards, qualifications, assessment and certification The two sub-frameworks that are relevant for VET are the General and Further Education and Training Qualifications and Trades and Occupations Sub- Frameworks. As indicated in the ensuing discussion, there are important differences in the approach taken to standards and qualifications development and assessment and certification in these sub-frameworks. General and Further Education and Training Qualifications Sub-Framework Further Education refers to vocational and ABET (Adult Basic Education and Training) qualifications for adolescents and adults who are out of school. Within this sub-framework, a qualification may be academic or vocational in nature and is defined as the broad specifications and combinations of subjects, which must be achieved by learners. These qualifications prepare learners in a broad, general way for further learning and for becoming educated South African citizens with some readiness to enter the world of work. To this end, all the qualifications are discipline based and include foundational learning, so providing opportunities for proficiency in one or more languages as well as in some form of mathematics or mathematical literacy. The sub-framework provides the basis for integrating existing disciplinary based qualifications offered at institutions schools, Further Education and Training colleges and adult education and training centres both private and public into the national qualifications framework. These qualifications are not occupational qualifications, although the distinction between vocational and occupational qualifications is not clear. In this sub-framework, certificates are issued for qualifications that have at least a 50% component of quality assured external assessment based on approved syllabi or curriculum statements. Amongst other things qualifications in this sub-framework must have a set of exit level outcomes, confirmed post qualification articulation options, critical cross field outcomes and assessment requirements. In addition, documentation submitted with the qualifications must make reference to a curriculum. Qualifications in this sub-framework are outcomes based and must be supported by a curriculum statement. Learners may gain recognition for parts of a qualification. In this case, learners are issued with a... subject certificate towards one or more qualifications. All subjects in this sub-framework have a credit rating and credits are accumulated to gain a qualification. The award of a qualification marks the attainment of the necessary learning specified in the qualification and its associated curriculum. Umalusi is responsible for issuing certificates and quality assuring the certification process. RFP2013/03 CBET STUDY - INCEPTION REPORT 15

16 Occupations and Trades Sub-Framework Within the Occupations and Trades sub-framework, a qualification represents the achievement of learning outcomes intended to provide the competencies required to practice in an occupation, to perform occupationally-related skills and to provide a basis for further learning. Occupational qualifications developed under the auspices of the Quality Council for Trades and Occupations (QCTO) define the learning components required for occupational competence. These are specified in unit standards for the following components of learning: Knowledge and theory standards Practical skills standards Work experience standards. According to QCTO, many of the more generic knowledge and practical standards will appear in a number of different qualifications. A minimum credit value will be set for unit standards to ensure meaningful units of learning. This appears to be set at 6 credit points. Knowledge and theory represents not only the knowledge of the practicalities of the occupation but also the disciplinary knowledge relevant to the occupation. The disciplinary knowledge and theory component connects qualifications in the Occupations and Trades sub-framework to qualifications in other sub-frameworks. Occupational qualifications are registered on the NQF. Specifically excluded from the Occupations and Trades sub-framework are: Qualifications which include work-integrated learning and are registered on one of the other qualification frameworks Qualifications that lead to professional designations and are subject to specific legislation. The design of occupational qualifications at NQF levels 2 4 assumes that learners have foundational competencies in communication and mathematical literacy. Additional communication and mathematical literacy requirements are determined by the needs of each specific occupation. These are incorporated in the common/core learning requirements of the qualification. The assessment of foundational learning competence is based on the specifications contained in a designated curriculum component. The assessment of foundational learning competence can be completed prior to, or be integrated into the start of, any occupational learning programme for NQF level 2, 3 and/or 4 occupational awards. Foundational learning competence may also be specified in NQF level 1 occupational awards where deemed necessary. Foundational learning competence is a requirement for certification in relation to qualifications in this subframework but does not constitute credits on the NQF and is not assigned a particular level on the NQF. RFP2013/03 CBET STUDY - INCEPTION REPORT 16

17 The development of occupational qualifications and related unit standards is undertaken in conjunction with the development of a curriculum. The curriculum specifies the inputs required to develop the required occupational competence. The curriculum, which specifies each of the three learning components, is designed to support the implementation of the qualification. The curriculum provides guidance on: access requirements; exemptions from particular curriculum components; articulation with other learning pathways such as vocational qualifications obtained in education institutions; the content (scope and depth), the learning activities and the guidelines of internal assessment; the physical and human resource requirements for delivery. It is likely that occupations in this sub-framework will be clustered into groups of like occupations, for example construction occupations, and that the development of the qualifications and associated curriculum for each cluster will be undertaken at the same time. Assessment in this sub-framework is conducted against the outcomes related to the three components of learning. A national external assessment will be specified for each qualification. This can be seen as a reaction to the varied standards of assessment that took place under the former version of the NQF. Training provider registration and accreditation There are different arrangements in the two sub-frameworks for the registration and accreditation of providers. These are outlined below. General and Further Education and Training Qualifications Sub-Framework Umalusi accredits private providers of education and training as well as private assessment bodies to offer tuition and/or assessment for qualification(s) on the General and Further Education and Training Qualification Framework. These include: Independent schools; Private Further Education and Training Colleges; Private Adult Education and Training providers; Private assessment bodies that assess the qualifications Umalusi certifies. The accreditation of these institutions is based in large part on the enacted curriculum, internal assessments and their participation in external assessments. Umalusi does not accredit public providers. Instead Umalusi monitors and reports on the quality of the qualifications and curricula used in public schools, FET colleges and Adult Learning Centres, and externally monitors the national assessment system. RFP2013/03 CBET STUDY - INCEPTION REPORT 17

18 Umalusi s accreditation process is closely linked and dependent on the process of registration with the State that private providers of education and training must follow. Private assessment bodies are not currently required to register with the State. Registration grants the private provider the license to operate in South Africa. Accreditation on the other hand is a status granted to a private provider at the end of a quality assurance process and attests to the quality of provision offered. Private providers are accredited to offer / assess specific qualifications on the General and Further Education and Training Qualifications Framework. Occupations and Trades Sub-Framework Accreditation of Skills Development Providers is an integral component of the QCTO s quality assurance system. Occupational qualifications comprise three components: knowledge, practical and workplace experience. Providers offering the knowledge and practical skills components are considered Skills Development Providers and must be accredited by the QCTO. Employers offering the work experience component do not need to be accredited but the Sector Education and Training Authorities (SETAs) must approve these workplaces. The QCTO accredits Skills Development Providers to coordinate the provision and assessment of the knowledge and practical skills curriculum components of an occupational qualification. Skills Development Providers will only be accredited if they can coordinate the offering of both components of the occupational qualification and if they can prove a relationship with at least one approved workplace. This relationship must be confirmed by a SETA. The QCTO has indicated that it intends to simplify the accreditation process, by applying criteria that are stated in each curriculum and are fit-for-purpose for each qualification. The process will begin with self-evaluation and will promote quality improvement. Overlapping accreditation, registration and verification requirements will no longer apply. RFP2013/03 CBET STUDY - INCEPTION REPORT 18

19 Pathways The development of pathways within and between qualifications in each subframework and across sub-frameworks is a critical feature of the new system. The lack of pathways development was seen as a significant failing of earlier versions of the National Qualifications Framework. The promotion of pathways within the Occupations and Trades sub-framework is facilitated by: the clustering of qualifications for occupations. This will promote articulation and progression as well as facilitate recognition of prior learning (RPL). the specification of disciplinary knowledge in knowledge and theory standards that will link with the knowledge requirements in qualifications in other subframeworks. the qualification specifying the articulation arrangements that have been established with other qualifications in the Occupations and Trades subframework and other sub-frameworks. The development of pathways in the General and Further Education and Training Qualifications sub-framework is supported by the specification of articulation arrangements in the qualifications documentation. A key feature of qualifications in this sub-frame is vertical progression between qualifications within the subframework. Umalusi promotes pathways through establishing formal articulation arrangements between qualifications and actively reworking curriculum and assessment arrangements to promote qualification linkages. Funding mechanisms The VET sector in South Africa is funded through a combination of government funding, the Skills Development Levy, student fees, income derived through the commercial activities of providers, and donations. RFP2013/03 CBET STUDY - INCEPTION REPORT 19

20 VET qualifications implementation Lead agencies The lead agencies involved in promoting VET qualifications implementation in South Africa are: Minsitry for Higher Education and Training responsible for VET policy and financing Umalusi responsible for qualifications and quality assurance in the General and Further Education and Training Qualifications sub-framework Quality Council for Occupations and Trades responsible for qualifications and quality assurance in the Occupations and Trades sub-framework South African Qualifications Authority responsible for coordination of the national qualifications framework SETAs responsible for promoting learnerships, gathering data on workplace skills needs, supporting providers to deliver programmes necessary in their sectors, and approving workplaces for on the job training for the Quality Council for Occupations and Trades, Stakeholders and roles in training implementation The following chart provides a summary of the key stakeholders and their roles in VET provision. Roles of key stakeholders Stakeholders Policy Finance Quality Assurance Training Delivery Assessment Moderation Standards Development Ministry of Higher Education & Training X X Quality Council X X X X SAQA X X SETAs X X Public providers Private Providers X X X X X X RFP2013/03 CBET STUDY - INCEPTION REPORT 20

21 Barriers and factors supporting VET reform The key barriers to implementation appear to be: The costs associated with developing and maintaining the new training products, namely the proposed national curriculum and national assessment materials. The identification of clear and accessible articulation arrangements both within and across the sub-frameworks. The engagement of industry and other stakeholders in the design and development of the new training products. The provision of adequate, quality work placements opportunities for learners to meet the new mandatory requirements for work experience in the qualifications in the Occupations and Trades sub-framework. The lack of a clear distinction between vocational and occupational qualifications, the different qualification development and quality assurance systems that apply for qualifications in these areas, and the potential barriers that this pose for the development of pathways between the qualifications administered by the two Quality Councils. The key factor supporting the implementation appear to be: The establishment of three Quality Councils with clear responsibility for qualifications development and quality assurance that replaces the myriad of bodies that operated under previous versions of the framework. The development of national curriculum and assessment products may assist providers implement the new qualifications and give industry greater confidence in the outputs of the VET system. The clustering of occupations for qualifications development in the Occupations and Trades sub-framework may streamline the development of curriculum and unit standards, reduce development costs, and promote pathways. Lessons learnt The key messages from the South African experience, especially emanating from the work undertaken by OCTO, for Namibia appear to be the:! clustering of occupations for qualifications development.! setting of a minimum credit value for unit standards to ensure that each standard represents a significant volume of learning.! development of a curriculum product to support the implementation of the qualification.! inclusion of foundation competencies in qualifications to ensure that learners have the communication and mathematical skills needed for work and progression to further education.! streamlining of accreditation and registration requirements to reduce the administrative burden on providers seeking to offer VET qualifications. RFP2013/03 CBET STUDY - INCEPTION REPORT 21

22 4.2 Mauritius The introduction of the Mauritius Qualifications Framework (MQF) and the associated reforms to the VET sector was a direct response to deteriorating economic conditions and the recognition that the existing education and training sector was ill equipped to deal with the challenges confronting the country. These challenges included: rising unemployment. a growing reliance on recruiting skilled workers from overseas to address skill shortages despite significant levels of unemployment. the need to develop workforce skills in new and emerging technologies. the importance of diversifying the economy and developing industries capable of absorbing local labour. failures in the education and training system evidenced by a low level of throughput in schooling, the need for the VET sector to provide an alternate solutions for out of school youth, fragmentation and low levels of recognition of VET programmes and the proliferation of qualifications which were not quality assured. the lack of articulation within and across the school, VET and higher education sectors that made it difficult for learners to achieve mobility up a learning pathway and for employers to know what to expect from a graduate of a particular VET qualification. the lack of any effective way of determining the international equivalence of qualifications issued by VET and higher education providers in Mauritius. The introduction of the MQF and the associated VET reforms was underpinned by a desire by policy makers to ensure that VET qualifications issued by providers in Mauritius were: credible and useful to employers; understood by the public; able to give students an opportunity to advance in their learning path; and recognised internationally. RFP2013/03 CBET STUDY - INCEPTION REPORT 22

23 CBET system design The Mauritius Qualifications Framework As illustrated below, the Mauritius Qualifications Framework (MQF) comprises ten levels and lists all quality assured qualifications issued in Mauritius. The Mauritius Qualifications Authority [MQA], which operates under the Ministry of Tertiary Education, Science, Research and Technology, administers the Framework. According to the MQA, the Framework is designed to: promote access, motivation and achievement in education and training, strengthening international competitiveness. promote lifelong learning by helping people to understand clear progression routes. avoid duplication and overlap of qualifications while making sure all learning needs are covered. promote public and professional confidence in the integrity and relevance of national awards. LEVEL PRIMARY / SECONDARY EDUCATION TVET / WORKPLACE TERTIARY EDUCTION LEVEL 10 Doctorate 10 9 Masters Degree e.g. MA, MSc, M.Phil Postgraduate Certificates, Postgraduate Diplomas 8 Bachelor with Honours, Conversion, Programmes 7 Bachelor (ord. Degree) 7 6 Diploma Diploma 6 5 HSC / GCE A Level / BAC / IBAC Certificate Certificate SC / GCE 0 Level Certificate of Primary Education 1 As shown in the chart above, the MQF recognises three categories of qualifications. These are: Qualifications in the primary/secondary education and levels 1 to 5 on the NQF with specific qualifications at certain levels such as the GCE, the SC, HSC, Baccalaureate). Qualifications in the VET/workplace sector at all levels of the NQF. Post-secondary/tertiary qualifications at levels RFP2013/03 CBET STUDY - INCEPTION REPORT 23

24 While the MQA is responsible for the coordination of the NQF, relatively autonomous bodies have responsibility for each category of qualifications. These bodies are: The Ministry of Education, which is responsible for primary and secondary schooling with regards to: the registration of schools, curricula development, and the quality assurance of schools. The MQA, which is responsible for VET / workplace provision including: the registration of providers, programme approval, and the generation of qualifications and standards. The Tertiary Education Commission (TEC), which is responsible for the tertiary sector, including: the registration of providers, programme approval and moderating quality assurance. The TEC does not generate qualifications but focuses on establishing the equivalence of qualifications in alignment with the levels of the NQF. RFP2013/03 CBET STUDY - INCEPTION REPORT 24

25 Standards and qualifications Qualifications in the VET / workplace sector are expressed in terms of unit standards. Learners accumulate unit standard credits towards qualifications. The unit standards specify the different elements that are required to achieve the identified area of competence and provide the associated performance criteria. MQA has established a network of Industry Training Advisory Committees, which include representatives from the private and public sectors, to generate qualifications and standards. According to the MQA web site in June 2014, standards and qualifications exist in the following twenty-two industry sectors: Information and Communication Technology, Printing, Tourism and Hospitality Management, Jewellery, Building Construction and Civil Engineering, Adult Literacy, Health and Social Care, Textile and Apparel, Mechanical Engineering, Electrical and Electronics Engineering, Seafood & Marine Industry, Early Childhood Education and Care, Agro Industry, Automotive, Beauty Care and Hairdressing, Management, Security Services, Wood Trades, Transport & Logistics, Handicraft, Automation and Robotics and Social Work. As at 31 July 2013, 4509 Unit Standards and 158 Qualifications at National Certificate and National Diploma level had been generated across these industry sectors. Assessment and Certification (incl. RPL) The quality assurance standards for the accreditation of programmes that have been established by the MQA state that the provider should submit the assessment policy and the capacity and procedures to conduct assessments. The certification process should be clearly described. The provider should also: (a) define policies and procedures to ensure assessment: processes and decisions will be open, systematic and consistent; methods are appropriate, fair, manageable and integrated with work or learning; evidence will be valid, authentic and complete. (b) have processes for internal moderation; (c) have an understanding of and procedures for involvement in extern al moderation activities; (d) ensure that there is a database for learner s work for moderation, reassessment and learner appeals; (e) ensure that learners are in formed of the procedures for reassessments and appeals of assessment results. Under these standards there is no explicit requirement that assessors be registered or hold any minimum level of qualification. RFP2013/03 CBET STUDY - INCEPTION REPORT 25

26 A Recognition of Prior Learning (RPL) policy has been implemented. Pilot projects were conducted in the Tourism and Construction sectors in 2007 and 2008 respectively and as a result, RPL was subsequently launched at national level in RPL has been extended to all sectors of the Mauritian economy. As at 31 July 2013, 51 persons have acquired their full qualifications through RPL and 21 others have been attributed a partial qualification. Training provider registration and accreditation The Mauritius Qualifications Authority (MQA) is responsible for the registration of training institutions offering VET and workplace training and for the approval of their programmes whether they lead to an award or not. In 2012, the MQA published new quality assurance standards for the: registration of training institutions registration of managers/programme officers registration of trainers approval of courses that do not lead to an award accreditation of programmes that lead to an award. Following accreditation of programmes, MQA carries out monitoring activities that are complementary to the internal monitoring and review mechanisms that providers must put in place. The MQA is authorised to visit with or without prior notice any accredited VET institution to inspect registers or documents. All trainers must be registered with the MQA and meet a set of minimum registration criteria that comprise: a basic academic qualification, a vocational or professional qualification and relevant work experience. Trainers should preferably have followed an approved train the trainer programme. In some cases, trainers without basic academic qualifications but having at least five years of work experience in certain specific trades may be considered for registration. Industry Engagement The key industry advisory structure is the national network of Industry Training Advisory Committees [ITACs]. The key function of the ITACs is to generate unit standards and qualifications for their relevant industry sectors. There are 21 ITACs that cover the following industry sectors: Management, Agro industry, Handicraft, Automation and Robotics, Automotive, Beauty Care and Hairdressing, Building Construction and Civil Works, Electrical and Electronics Engineering, Furniture Making, Language, Information and Communication Technology, Jewellery, Transport and Logistics, Mechanical Engineering, Printing, Tourism and Hospitality Management, Adult Literacy, Early Childhood Development & Care, Health and Social Care, Textile and Apparel, and Seafood & Marine Industry. RFP2013/03 CBET STUDY - INCEPTION REPORT 26