Department of Economic Development - Western Cape€¦ · Development of the Department of Economic...

Consultative Policy Discussion Document, first draft

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Department of Economic Development

Directorate: Industry Development

Towards Developing & Implementing Lifelong Learning Policy: Indicators for a Learning Cape

Report 4:


Prepared by

Division for Lifelong Learning, University of the Western Cape in terms of the SLA dated 20 October 2004

and

ODA (Pty) Ltd

in terms of the SLA dated 20 October 2004

31 March 2005


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Contents INTRODUCTION ..................................................................................................4

The policy background: Ikapa and the MEDS............................................................................ 4

Who will use the indicators and how?.......................................................................................... 6

The use of social indicators ........................................................................................................... 7

Data availability and quality......................................................................................................... 9

Characteristics to achieve a Learning Province ........................................................................ 10

THE APPROACH TO INDICATORS FOR A LEARNING CAPE .......................11

THE PROPOSED INDICATORS ........................................................................12

Diffuse Learning Environments ................................................................................................. 12

Initial Learning ............................................................................................................................ 14

Adult Learning............................................................................................................................. 15

IMPLEMENTATION PROPOSALS ....................................................................17

Implementation proposal for the use of indicators at a Provincial Level ............................... 17

Learning Enterprise Indicators: A Possible Implementation System ..................................... 18

Implementation proposal for the use of indicators at a local level .......................................... 23

ABBREVIATIONS ..............................................................................................30

REFERENCES ...................................................................................................34

APPENDICES.....................................................................................................44

Appendix 1: Availability & Quality of Administrative Data to draw upon in framing Indicators for the Learning Cape ............................................................................................... 45

Appendix 2: Examples of Bedrock Indicators........................................................................... 47

Appendix 3: Data Sources for Indicators................................................................................... 48


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Introduction This is the final report produced for the project to assist the Directorate: Industry Development of the Department of Economic Development with the development and implementation of Indicators for a Learning Cape. This forms part of policy processes to enhance Lifelong Learning within the Province. A Synopsis Report has been prepared to accompany this document, which includes details about the process of indicator development and a full set of references and abbreviations. The report is addressed to leaders within the Provincial Government. It is a consultative document that presents a set of proposed indicators, deals with aspects of their implementation and sets out how the indicators can be used as a policy instrument to lend support to the iKapa Elihlumayo strategies and specifically to the Micro-Economic Development Strategy (MEDS), the aspect of Ikapa which is lead by the DED.

The policy background: Ikapa and the MEDS iKapa Strategies, Lead Departments and Partners

iKapa Intervention Lead Department Supporting Departments Other Partners

Social Capital Formation Strategy

Social Services & Poverty Alleviation

Health, Education, Culture and Sport, Community Safety, Transport & Public Works

Civil Society Organisations

Human Resource Development Strategy

Education Provincial Administration, Transport and Public Works, Health, Agriculture

SETAs, Universities, Private facilities

Strategic Infrastructure Plan

Transport and Public Works

Housing, Environmental Affairs and Development Planning

Local Government, Parastatals

Micro-Economic Development Strategy

Economic Development

Agriculture, Environmental Affairs and Development Planning

Private Sector

A Spatial Development Framework

Environmental Affairs and Development Planning

All Departments Local Authorities, Private Sector


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The MEDS (in its 2004 draft) adopts a sectoral approach that is accompanied by theme-based interventions.1 The following key economic sectors have been identified.

Primary sector Agriculture and agri-processing Aquaculture and Mariculture (ie fishing)

Manufacturing Clothing, Textiles and Leather Metals and Engineering (including Boat Building and Ship Repair) Oil and Gas – (including energy services, to repair oil rigs etc) Furniture Cultural Industries (including Crafts and Jewellery)

Service Industry

Tourism Business Process Outsourcing (BPO) including Call Centres, Call Centres and other Business Process Outsourcing (BPO) Centres Information and Communication Technology (ICT) Film Industry

All of the other priorities of the IKapa strategy have a bearing on the MEDS. This report on learning indicators addresses most directly the imperatives for building human and social capital and the intersections between the interventions in these two areas and the MEDS. The interventions on strategic infrastructure and spatial development, while crucial to the strategy as a whole, are addressed incidentally. If the sectoral approach of the MEDS is to succeed, what aspects of human and social capital development are the most important? How should these be measured and monitored? Conversely, what MEDS interventions will have the most positive impact upon the strengthening of human and social capital? This report takes the IKapa strategic interventions as its starting point, but it positions itself with the MEDS. If the growth sectors in the Western Cape are to expand to their full potential, learning cannot be seen as an “input”. There is a

1 The MEDS will only be finalised in mid-2005, after consultation with the PDC. The sector, and other information on the draft MEDS thinking is obtained from Wesgro (2004) “An Investment Strategy to Grow the Western Cape – 2010: Imveliso Mali kwiKapa elihlumayo” ; Wesgro’s Strategic Plan 2005/06 to 2007/08 (dated 2 December 2004) and the December 2004 publication of the PDC on The Framework Agreement for Growth and Development and Social Dialogue..


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responsibility on part of the Provincial Government to ensure that learning is responsive to the needs of the priority sectors and of the economy as a whole. This is the one concern of the learning indicators. The second concern is that learning should incorporate a commitment to support lifelong learning.

Who will use the indicators and how? There are five broad audiences for the Learning Cape Indicators - policy makers (and influencers); policy implementers (including both government and institutions), local government , civil society and the general public, including the media and commentators on public policy. The place of indicators in the MEDS/Ikapa policy process

The indicators are crafted to reflect provincial MEDS/Ikapa objectives and are a guide to policy adjustments. If one can set out the results that need to be achieved in the indicators, this can suggest policy instruments that can be used to move in the correct direction.

The role of indicators in implementation

The indicators are able to measure the success of policy and the extent of delivery or progress. There is a possible link to performance management or to broader issues of accountability. Indicators are also of use within institutions responsible for implementing government policy and programmes or which have undertaken to support the vision of the Learning Cape.

The use of Indicators at local government level

The learning Indicators have resonance at local level – reflecting on the learning performance of schools, factories and businesses and communities. Local government, through the IDP process in particular, is responsible for creating an enabling environment for development and democracy. The indicators, translated into local specifics, will be a tool to focus attention on learning and on the steps that can be taken to build a learning community. Each municipality will progress at a different rate and along a path suited to its capacity and level of enthusiasm. The learning indicators will provide a lever for local government to interest itself in learning, an area fundamental to development, but one in which they have built little real influence at the present time.


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Indicators will influence public debate on life-long learning

The general public, the media and social commentators will be able to debate the indicators and raise public awareness around the issue of learning – learning for the economy, learning for citizenship, learning for life. The indicators will make life-long learning, access to learning and the encouragement of learning communities’ issues of wider concern.

The use of social indicators2 Indicators should be framed to illuminate and guide, not to show-up or punish. They must be used to show success as well as problems. An "indicator" is a measure, for which we have data, that helps quantify the achievement of a desired result. Indicators help answer the question: "How would we know a result if we achieved it?" The two elements to take note of in this definition are:

• The pre-existence of a desired result: this may be explicit or implicit but it is what gives direction to the shaping of the indicators.

• The existence of data: some form of measurable data quantifies/describes a relationship with the desired result

Examples of indicators include: rates of preventable disease among children; reading and maths achievement scores; high school graduation rates; rates of teen pregnancy and drug use; and crime rates. A good indicator should:

• “be relevant to the characteristic it is intended to describe (including policy relevant);

• be supported by reliable and timely data; • be sensitive to the underlying phenomenon which it purports to measure; • be intelligible and easily interpreted; • preferably be available for several time periods including recent periods;

and • for the purposes of international comparison, preferably be available for

other countries.”

2 This summary has been freely assembled from Report 1, which cites the work of Friedman (1997), Trewin (2002), Reed (2000) and others. The report itself should be consulted for specific references.


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There are a variety of choices to be made when designing a set of social indicators. These include the following:

Inputs vs Outputs Some social indicators measure inputs (the amount of resources committed to a focus area) and others outputs (the results achieved). Education input data would focus on resources, such as the number of desks, teachers, and schools. Output data would focus on outcomes, such as the literacy rate, examination pass rates and skill levels. Ranking vs change over time Some indicators measure performance comparatively with others (e.g. the World Values Survey performs this function, comparing the countries of the world). Some track changes over time (e.g. the New York City Social Indicators is an example of this, where the same data were sought at two-yearly intervals to determine progress, or retrogression). Objective vs Subjective ‘Objective’ refers to data that are simply quantitative (e.g. the number of enrolments in FET colleges in 2004 in the Western Cape); subjective refers to data which are qualitative - it solicits opinion and judgement (e.g. What is the biggest challenge in being a part-time, adult learner?) New vs already existing Some data are collected specifically for the particular set of social indicators. Other data already exists (and it may be used as it is or placed in a context that gives it its new significance). The possibility of a single index The Presidency, in its Ten Year Review discussion document (Presidency, 2003) promotes the use of composite indicators. Each indicator is assigned a particular weight and the different elements are combined into one figure that indicates progress or change over time (in this case generalised movement towards or away from the Learning Cape). This relies on the existence of a generally agreed model which defines and prioritises key elements of what is being measured - learning in the case of this project.

The relationship between the development of social indicators and the development of strategy can be strong or weak. Some indicators are produced by interest groups as rallying points and challenges for government. Some are produced by governments as a specific aid in moving towards policy goals.


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“At their most noble, civic indicators are used as measuring systems to assist societies and communities towards a desired course, to clarify key issues and challenges, and to prioritise resources, especially spending. They do not just monitor progress; they help make it happen.” (Reed 2000) In the present case, we need to develop indicators that show progress towards the vision of the Learning Cape or which highlight the obstacles that stand in the way. Our aim is to:

• Establish targets and measures (indicators) that inform and track progress

towards realising the strategic vision. Enable the indicators to help to develop strategies.

Background research highlights the fact that indicator construction is a social process. It requires consultation and is therefore slow. This process can be used to win supporters for the Learning Cape initiative and to spread the discussion within the province on how to promote a learning region and learning communities.

Data availability and quality Population of the Indicators: Once there is a sufficient level of agreement between stakeholders, the actual values of the indicators need to be calculated. It is important that people understand how each indicator has been constructed and that they are able to interrogate the figures that are used. The problems with data around learning, education and training and South African social statistics in general are legion.3 Transparency on the construction of the indicators is particularly important in this light. It is also essential if indicators are to be compiled annually that there is consistency in calculations and assumptions.4 The availability and quality of data on learning, from existing sources, is set out in Appendix 1 below. It needs to be emphasised that where data is collected by government or by public entities, and is hence ‘available’, it is often not accessible because of restrictions on distribution. Even when the quality of data is good, it nevertheless needs careful interpretation. If the figures speak for themselves, they may not be telling the truth! The report was unable to locate data sources for a number of indicators. It therefore has had to advise that the DED should interact with other government

3 See Report 1 4 The Transformation Audit (Brown and Fölscher 2004) sets an excellent example in this regard. See Woolard (2004).T he details of indicator calculation are published on the TA website: www.transformationaudit.co.za.


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departments to see how such information might be collected. In some cases, additional questions could be attached to existing surveys. In other cases, dedicated surveys would be required. The costs and benefits of such expenditure need to be carefully considered.

Characteristics to achieve a Learning Province The context for developing the proposed indicators for a Learning Cape is set by the Ikapa Elihlumayo strategy. It builds upon insights that are emerging from the MEDS process and on the framework for Human Resource and Skills Development published by the DEDT in November 2003. (PGWC 2003)

HR&SD Strategy framework summary: Characteristics to achieve a Learning Province

Education: Excellent education and training systems at all levels, with high participation rates.

Partnerships and networking: High levels of collaboration, networking and clustering within and across economic and knowledge sectors, especially around areas of innovation and poverty.

Information: Good quality systems for access, collection, analysis, management and dissemination of information.

Out of the silos: A constant challenging of traditional categories to suit rapidly changing social and economic realities.

Accessibility: Providing frequently updated, easily accessible information and counselling services to enable citizens to maximise their learning opportunities.

Lifelong learning valued: High value placed on formal, non-formal and informal learning throughout life, which is expressed in tangible improvement in the learner’s employment and community situations.

Social cohesion: Learning supports high levels of social cohesion (across social class, ethnicity, gender, ability, geography and age) within a society of limited social polarities.


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The Approach to Indicators for a Learning Cape The starting point for this report is that the Learning Cape is integral to the achievement of both economic growth and social cohesion. These are two sides of the same coin. It is common cause in South Africa that economic development is dependent on attainment of social equity and justice. Within this understanding, the development of indicators for the Learning Cape is a strategic process not a neutral, simply technical one. Choices have to be made. The first of these choices reflects the common tension between economic and social dimensions. This can also manifest as tension between the individual and the collective. Economic purposes are sometimes interpreted and sought in individual terms such as job acquisition and reduced unemployment levels, or the acquisition and accreditation of skills thought necessary to gain employment and match labour market needs. Another approach is to consider the economic character of a community in its locality and to look for indicators of rising prosperity such as employment, productivity, mobility of skilled labour and inward capital investment. In one case the individuals and their collective achievements are the focus of attention and the other focuses on the achievement of particular communities. Underpinning the particular approaches are understandings of economic and social development. Some stress the importance of social indicators like those of health and social welfare, while others highlight specifically economic indicators. In all cases the intention is to create an upward spiral sufficient to enable economic and social development. The indicators try to capture the inter-relationships between economic development and social cohesion, and between the individual and collective. Secondly, the report chooses to distinguish formal education institutions from the broader learning environment. It describes the formal institutions as the “bedrock” of the learning environment. This follows the first characteristic of the Learning Cape in the “Blue Book”:

“Excellent education and training systems at all levels, with high participation rates.”

There is need of `an excellent education and training system` in order to have a ‘learning region’. However, the report does not subscribe to the view that there is a linear process which requires first the excellent formal system and only then the development of a broader informal and nonformal learning culture. There is ample evidence that an excellent formal system is not possible without facilitative learning cultures, in families, in workplaces and in communities. Hence the identification of the formal education system as part of the bedrock of a learning region and the elaboration of a set of `bedrock indicators` for which different parts of the formal education system are responsible. These are included as Appendix


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2 to act as a backdrop to the more specific, unique Learning Cape indicators for which the DED can have oversight. Thirdly, the report recognises the importance of three areas of learning that are of particular concern to the DED:5

• Technology • Mathematics and Language • Entrepreneurship and Employability

Fourthly, the report is guided by the “Learning Cape Characteristics”. Fifthly, the report draws upon three different types of indicators in assembling this ‘basket’ of indicators: input, output and outcome. An effort has been made to include a balance of the three types, bearing in mind that outcome indicators are generally both the most desirable and the hardest for which to find data. Finally, the indicators are a reflection of the current poor general state of South African statistics. Some of the most desirable indicators have no data. The report outlines the data-gathering methods for each indicator. Some of the data for the indicators is already neatly captured. Other data will need dedicated data-capturing processes to be set in motion. The Proposed Indicators The proposed indicators are designed to collectively give as clear an indication as is possible, in the light of the restricted data available, of the state of play in relation to the Learning Cape. Individually, they will not perform the same function. The indicators are divided into the three key elements of life-long learning – initial learning, adult learning and diffuse learning environments.6

Diffuse Learning Environments Learning does not take place only through organised educational processes – such as courses of study that lead to qualifications or non-formal courses that assist people to learn particular skills, for their work or home management or as hobbies for their leisure time.7 Throughout life, informal learning events and processes take place. People learn as they live - but active learning can be limited or enhanced by the cultural context. The daily life environment of pre-school children is part of the informal dimension of education. But this can vary greatly in richness as a learning

5 These areas were identified in the first reference group meeting in November 2004 6 See Report 1 and Report 2. 7 The notes in this section have been drawn freely from DLL (2001)


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environment, depending on the income of the family and its location. Cultural factors influencing educational aspirations and learning achievement include the attitude towards education and the predisposition to specific types of learning in the family. The mere availability of books and the prevailing attitudes to written communication have an influence, both in initial and adult learning. Much of the literature on lifelong learning stresses the importance of the early learning experience in developing successful lifelong learners. Rich early learning goes beyond what happens in the formal classroom situation and includes experiences in the home and local community. Membership of the local library, of a faith-based organisation and parents attending parent enrichment groups all contribute to developing a culture of learning. A pattern established early in life assists the lifelong learner to engage in the ‘diffuse learning’ opportunities in his/her environment. Because of the nature of this form of learning, statistical information on the extent of involvement in diffuse learning is hard to come by. Indicators using existing data sources

1. Establishment of the Learning Cape Initiative (LCI), as a Section 21 Company.

2. Statistics on usage of Multi-Purpose Community Centres (MPCC) in the Province. Note: 65 are now in operation nationally. Government plans to locate a MPCC in each municipality by 2014 (Programme of Action 2005)

3. Number of schools responding positively to the questions in the Annual Survey of Schools conducted by the WCED on whether the school is used for other learning purposes such as adult basic education, early childhood development or cultural purposes.

4. Numbers of PITs (Public Internet Terminals) in post offices and Multi Purpose Community Centres and their usage figures.

5. Number of municipalities that actively promote involvement in the annual learning Cape Festival.

6. An aggregate of the number of people tested annually in the Voluntary Counselling and Testing programme and the number of women tested in the Prevention of Mother To Child Transmission programme.

7. Number of educational organisations able to provide learners with daily access to web-linked computer facilities.


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Note: Although it is important in itself, this indicator also acts as proxy for the existence of reliable and affordable ICT provision generally in the Province. As such it is a general condition of the Learning Cape.

Indicators requiring collection of new data

8. Number of local government areas describing themselves as learning communities by committing to specified learning targets.

9. Average number of hours libraries in the Western Cape are open per month.

10. Proportion of people living in the Western Cape who are able to travel using public transport after 20h00.

Initial Learning According to DLL (2001:22):

“Initial Learning refers to formal learning from preschool to the completion of formal schooling. In South Africa this would include ECD, particularly the reception year, general and further education.”

Of course this period is dominated by the formal education system, which is covered in the appendix. Indicators using existing data sources

11. Proportion of children recognised as vulnerable in terms of their weight, cognitive and physical development, HIV/Aids status or poverty level.

12. The number of school governing bodies that have been awarded allocated functions in recognition of their competence. Note: This makes reference to the section on allocated functions of governing bodies as described in Section 21 of the Schools Act of 1996.

13. Number of educators in the Western Cape trained to teach technology.

14. Number of Grade 9 and 11 learners having access to career guidance.

15. Increase in the proportion and range of learners participating in Mathematic Olympiads.


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Indicators requiring new collection of data

16. Number of partnerships in schools leading to work shadow opportunities

17. Establishment and effective functioning of a structured intersectoral body to facilitate more effective provision for all children aged 0 -9 years in the Western Cape.

Adult Learning A major focus of adult learning is the development of a skilled workforce. Some of the indicators refer to priority sectors, identified in Section 2.1.2 of the Framework Agreement on Growth and Development in the Western Cape. Indicators using existing data sources

18. A rise in absolute numbers & proportion of employees in intermediate and high skill categories of work & a fall in the numbers and proportion in the low skilled category ‘elementary occupations’. Note: This data is available in Stats SA’s Labour Force Survey (LFS 2004). The inclusion of both absolute and proportional numbers is intended to avoid registering a false positive movement from this indicator which could result from a simple fall in the numbers of low skill workers, or a false negative from a simple rise in those numbers. The latter is clearly undesirable in a period of a labour-intensive public works programme.

19. A rise in the absolute number of completed learnerships at FET colleges.

20. The number of learnerships completed, in association with FET colleges, which contain a module on numeracy, mathematics or mathematical literacy.

21. Number of RED Door offices in the province and their usage.

22. Number of registered training programmes developed at NQF 5 level to meet development needs of priority sectors.

23. The Graduation Rate of African, Coloured and female learners in Higher Education compared with White, Indian and male learners.


24. All SETAs produce reliable baseline provincial data identifying key inputs to and outputs from their workplace learning programmes


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25. Increase in the number of learners assessed in ABET programmes in the Western Cape that are funded by SETAs and EPWP.

26. Proportion of FET learners who spend more that 50% or more of their time during the year exposed to the work environment – via placements, internships, learnerships etc –as part of their course of study.

27. The establishment and effective functioning of a provincial forum of HE, social partners and other relevant parties to plan the integration of provincial growth and development targets into higher education and training programmes and research.

28. The number of partnerships amongst HEIs and between them and priority sectors.

29. A survey of employees and employers is commissioned and implemented annually to investigate both formal and informal learning opportunities for employees in the workplaces of the Western Cape.

30. Effectiveness of networking between initiatives providing informal and non-formal opportunities to develop an interest in general mathematics in learners, educators and workers.

Desirable indicators, but which presently lack a viable data source

31. Number of Western Cape residents visiting public educational facilities. (Diffuse learning)

32. Educational programmes as a percentage of total programmes on local radio stations. (Diffuse learning)

33. Number of parent enrichment groups in existence. (Diffuse learning)

34. A greater absolute amount and proportion of SETA grants is spent on SMMEs. (Adult learning)


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Implementation Proposals

Implementation proposal for the use of indicators at a Provincial Level 1. This project has provided the DED with a framework on Indicators of a

Learning Cape that leads the way in the country in terms of the development of a learning province. The indicators are a starting point for breaking new ground in thinking about the relationships between the economy and the socio-political-cultural contexts. They can be used to spark debate on the notion of the Learning Cape, to set a research agenda, which cuts across departments and sectors, and to advocate for the centrality of a culture of lifelong learning to social and economic well being.

2. The indicators have not yet been populated. They constitute a framework.

The next steps would be: a. To test the indicators with a range of sectors and promote

discussion on the appropriateness of the indicators themselves; b. to populate them.

3. A key question is how to populate the indicators. The process could be

undertaken in a developmental, participatory way. It could equally be done as a technical exercise, or in a combination of the two. There could be pilot sites identified and supported so that the participatory research methodology is taught and the results are developed to feed into local communities. The processes of using the indicators could be to encourage `learning` - so the means and the ends are both important. The piloting and the consultation could be done simultaneously.

4. The basket of indicators can be expanded and new baskets created. Different

sectors or institutions or places could be encouraged to expand the indicators in their areas. ECD is already doing this.

5. The Learning Cape Indicators need to be popularised and used to

complement audits of WCED and others sets of indicators, like those of the NSDS. A productive partnership between DED and WCED could spawn research and development projects which deepen understanding of learning cultures and success / failure rates.

6. Criteria for the designation “learning community” could be agreed and targets

for an increase in their number could be set annually and audits done to report back at the annual Learning Cape Festival. Recognition of learning communities could be done in a range of ways, for example awards.


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7. A popular booklet is needed with the indicators, once finalised, in the three languages, and with suggestions as to how to implement the indicators in order to expand possibilities for enhancing learning cultures.

8. Critical to all of this is `ownership` and `agency` so that there is leadership in

the drive to implementation and ongoing development of the LC indicators. This project is part of the process of ongoing development and understanding of ‘The Learning Cape’ which pursues both economic development and social cohesion, two sides of the same coin. A culture of lifelong learning is integral to their attainment. The development and implementation of `Learning Cape Indicators` require ongoing, consistent work, which needs a determined champion. Resources and stamina over several years will be required to tease out these proposals and let them take root. This is innovative, cutting edge work for which the DED is to be lauded. The work is now ready to move to the next level so the possibilities can be fully realised. The following section provides an indication of how the indicators could be developed. Two sites of learning were selected for this purpose. These are the workplace and a local or municipal authority. The work is preliminary and should serve as a guide of the kind of usage envisaged.

Learning Enterprise Indicators: A Possible Implementation System

Objective A ‘Learning Enterprise’ is not simply an enterprise which does a lot of training. The term has come to describe an enterprise which seeks to continuously improve the capacity of its employees to contribute and be rewarded for their contribution. In some industries that requires significant workplace change as the contribution of employees is constrained by the way the work is currently organised. Workplace change is a major driver of workplace learning as it reorganises work to require employees to perform roles that require more skill. The desire to develop learning enterprises is founded on the assumption that it is desirable to increase the number of enterprises which invest seriously in their employees, evidenced by such characteristics as that:

• Employees believe that the enterprise is genuinely committed to supporting their development (IIP)

• Productive partnerships are forged between enterprises and organisations of further and higher learning

• The development of employees is integrated into core planning. The provincial basket of indicators contains an indicator designed to discover the amount of “formal and informal learning opportunities” being made available to


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employees in the province. We would see the development of a specific basket of “Learning Enterprise Indicators’ as being an enterprise-level expansion of that indicator.

An example of a system Statistics are unable to capture this kind of qualitative characteristic. This, coupled with the desire to stimulate enterprises to invest more in their employees, is recognised by the Department of Labour in its support for the implementation of a standard from the British parastatal8 ‘Investors in People’ (IIP). We describe below the Standard, the plans of the Department of Labour9 and some suggestions for provincial implementation. IIP is both an international standard and a business development tool focused on improving the achievement of business objectives through the development of people. The Investors in People Standard is being piloted as part of the Department of Labour’s Skills Development Strategy. The Department states that 650 enterprises have so far committed to implementation of the Standard. Enterprises wishing to be assessed against the standard are assessed by specially trained IIP practitioners. The assessment looks for evidence against the indicators in the Standard at all levels of the enterprise. DoL is the South African license holder for the Investors in People standard and so far there are 25 registered practitioners in the country. More are in the pipeline but the process has significantly slowed since EU funding for the practitioners during training has dried up. The funded group, trainee practitioners who received a fee while being developed), took 6 to 12 months to train; without funding it is taking 18 months. Once an enterprise commits to implement the Investors in People Standard, it signs a commitment certificate with its relevant SETA. There are also registered Investors in People advisers available to assist organisations to implement the IIP Standard. The cost of these advisers is R2 000 per day plus transportation. The cost of assessment is the same. Whilst the time taken for assessment of enterprises varies according to variables such as its geographical spread, it is estimated that an assessment of a company with 50 employees would take 3 days; a 1000 employee company would take 8 days. Detailed quotations are given to enterprises after an initial overview of the enterprise is established. Some SETAs are currently involved in three-day training courses for ‘champions’ within enterprises.

8 The UK government calls it a ‘Non-Departmental Public Body”. This is a form of parastatal enterprise which falls under the reporting powers of National Government. For greater detail see http://www.knowledgenetwork.gov.uk/ndpb/ndpb.nsf/Shortcuts/what_is_a_public_body 9 Information on the work of the Department of Labour comes from a conversation and email exchange with Adri Solomon, Project Manager of Investors in People in the Department.


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If the Investors in People Standard is approved by the Minister of Labour as the National Standard of Good Practice in Skills Development10, it is planned that legislation will be forthcoming which is intended to incorporate this scheme11 within the National Skills Development Strategy. It is intended to offer incentives to participate in the scheme in the form of a refund of 50% of the Skills Levy from companies which meet the standard12.

Suggestions for Provincial Implementation In our understanding of the IIP system, three weaknesses emerge which we would suggest could be addressed in provincial implementation. 1. Cost and Commitment IIP is not cheap, either for the assessment or for implementation of the requirements to meet the standard. It is likely therefore only to be taken up by larger companies. This is a drawback in relation to an objective of wide-scale movement in the direction of learning enterprises. To mitigate this, it would be possible to offer different levels of award, relating to different degrees of compliance with the standard. So, a system could comprise three levels: Level 1: Principles and plans, in which an enterprise would be required only

to demonstrate that it has adopted the principles of the system and put in place plans for its implementation.

Level 2: Practices, in which an enterprise would be required to produce

evidence that its plans were being implemented. Level 3: Outcomes, the highest level, in which the enterprise would be

required to demonstrate that it has clearly benefited in its core business from becoming a learning organisation.

These three levels are consistent with different aspects of the IIP Standard. We recognise that such a scheme would not be appropriate for SMMEs and accept that alternative strategies would be required.

10 See Success Indicator 2.4, Lever 2.4 of the Department of Labour’s National Skills Development Strategy 1 April 2005 - 31 March 2010. 11 It should be noted that, according to Ms Solomon, IIP has not yet been formally selected as the standard to use. 12 On questioning, Ms Solomon accepted that this might not be very effective as an incentive since most companies considering participation in such an advanced scheme are likely already to be fulfilling their Skills Development Plan commitments and therefore receiving refunds on their levy/


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2. Incentive If the provincial government wants to provide a significant incentive to enterprises to buy in to such a system, it could provide its own in the form of points on the Black Economic Empowerment scorecard for government tenders to those who achieve each of the levels of the standard. 3. Indigenisation IIP is an international standard produced in the UK. It would be assisted by the incorporation of elements of the South African skills development system. The Department of Labour is expected to make only one major change to the UK IIP standard (replacing the term ‘equality of opportunity’ with ‘equity’. We would suggest further changes and gives some ideas below.

Some Draft Indicators What follows represents a packaging of IIP indicators, with some of our own ideas, in the three levels. We have used some of IIPs indicators in exactly their original formulation and have redrafted others to more accurately express our learning focus. We would anticipate that these indicators would at least need to receive commentary from representatives of the social partners; whether that would extend from consultation to negotiation would be a matter of strategy for the provincial government.

Level 1: Principles and Plans At this level, enterprises have put in place principles, plans and strategies for workplace learning but have not yet implemented them. 1.1 The enterprise has a formal commitment to supporting the development of its

employees. IIP

1.2 Strategies are put in place that support the development of employees in order to improve the enterprise’s performance

IIP

1.3 The enterprise has a plan with clear aims and objectives which are the product of consultative processes and are understood by everyone

IIP

Level 2: Practices At this level, there is effective implementation of an appropriate set of practices in the development of employees. 2.1 Employees receive appropriate and constructive feedback on a timely and regular basis IIP2.2 The development of employees is in line with the organisation’s aims and objectives IIP2.3 There is evidence that employees have been encouraged to improve their own performance and to share knowledge and skills in order to improve other people’s.

IIP


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2.4 Managers have the knowledge and skills for, and are effective in supporting the development of employees.

IIP

2.5 Effective induction processes are in place. IIP2.6 All employees have clear career paths within 6 months of joining the enterprise. 2.7 Employees believe that they have the opportunity to implement new learning. 2.8 Development is linked to relevant external qualifications and/or standards where appropriate.

IIP

2.9 The enterprise develops partnerships with institutions of higher and further education to further research and/or learning leading to qualifications.

2.10 Learning includes both off-the-job and on-the-job activities and programmes. 2.11 Implementation reports reflect active and comprehensive implementation of the Workplace Skills plan.

2.12 Information about enterprise performance is communicated regularly to employees in ways that make sense to the employees.13

Level 3: Outcomes At the highest level, enterprises are able to perceive and calculate the material benefits they accrue from their investment in their employees. 3.1 A rise in absolute numbers & proportion of employees in skilled categories of work and a fall in the numbers and proportion in unskilled categories

3.2 A rise in the number of completed learnerships 3.3 A decrease in the proportion of employees requiring ABET programmes 3.4 Employees believe the organisation is genuinely committed to supporting their development

IIP

3.5 Employees believe their contribution to the organisation is recognised IIP3.6 The enterprise can show that employees learn and develop effectively and are rewarded accordingly.

IIP

3.7 The enterprise can show that the development of employees has improved its performance

After the Indicators are agreed In summary, the actions required would be:

1. Verify the fit with the Department of Labour’s plans 2. Obtain agreement on the indicators from the social partners (possibly

through the PDC) 3. Develop an assessment instrument based on the feedback 4. Obtain agreement on the need for compliance through advocacy

processes 5. Devise a strategy for implementation.

13 This indicator is included on the basis of research (cited in DTI 2003) that “Other data sets focused on the use rather than acquisition of workplace skills have revealed a demonstrable link between greater levels of employee involvement and higher skills usage at work.”


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Implementation proposal for the use of indicators at a local level A Learning Province consists of learning communities. Specific indicators need to be identified that can be useful at the level of municipalities and locally-based organisations to trace progress – and to inspire action for continuous improvement. This section of the report questions how the Learning Cape can be implemented at local level by locally inspired efforts to improve the learning environment for the community. The Province has the potential to play a crucial supportive and inspirational role here because of its control of the most influential learning resources in each area – schools, FET colleges, libraries, clinics and hospitals. If the province has a programme able to provide material support to local learning initiatives, it can provide the basis for a completely new attitude to learning in communities. Real partnerships – with business, with schools and educational institutions – require the local authority to have access to resources. If these can be provincially sourced, but locally applied, the learning indicators at local level will begin to have real meaning. Where can local authorities act to impact upon the characteristics for a learning province? Local authorities will have the greatest impact on learning where they are able to support the initiatives of schools, and, to an extent, those of libraries and other educational institutions. The Learning Cape Festival provides an annual focus to encourage a learning consciousness at community level. There is also no reason why provincial resources to support learning should not be directed through NGO’s and CBO’s. Many local authorities still have to develop the capacity to act beyond their immediate responsibilities. A responsive provincial government will be able to direct assistance to the groups in a community best able to make use of resources. In many cases, a positive result will be achievable by putting existing provincial resources and fund allocations under stronger local control or influence. The aim is to allow communities to understand and make real choices about how to improve the local learning environment – for children, youths and adults. Current Constraints All studies highlight the problems with schooling in South Africa. The record of the Western Cape is better, overall, than other provinces, but its performance is, nevertheless, extremely poor. At the community level, the first point of concern for the learning province has to be with schooling. The problems of poor performance are not located only in the schools themselves. They reside in the


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community at large, where poverty, poor living conditions, a lack of transport and a deprived environment for learning all take their toll.14 When parents cannot read and write, their ability to assist their children to learn is much reduced. Movement towards the Learning Cape would turn around the current neglect of adult education both by the provincial and the national spheres of government. (Macfarlane 2005). Local authorities may give grants in aid to some ABET NGO’s but they have no real capacity to drive the need for literacy and numeracy amongst adults. The public library system in the Western Cape, despite its dedicated and innovative staff, is inadequately resourced. It suffers also from a constitutional anomaly which prevents local authorities from having full control over their libraries. This is a provincial government function. Local authorities also have no role at all in the management of education within their boundaries. The structures of government in SA conspire against learning initiatives at the community level. The Learning Indicators at local level Over half of the indicators proposed for the Learning Cape have an impact or meaning at the local level. When combined with the bedrock indicators, 30 indicators are counted, some of which are complex compound indicators that combine several measures together A local authority able to assemble all of this information, would have a fairly good picture of its performance as a learning community. If civic leadership to change and improve the situation is supported by the province, the learning indicators will become alive. As an initial step, it is recommended that six of the “provincial” indicators (including the bedrock indicators) are selected and adapted as learning indicators that can be presented at local level. Local Learning Indicator 1

Average number of hours local public libraries are open per month.

Local Learning Indicator 2

Number of schools in the district responding positively to the questions in the Annual Survey of Schools conducted by the WCED on whether the school is used for other learning purposes such as adult basic education, early childhood development or cultural purposes.

14 “Blacks [in the UK] seem to do badly largely because they live in bad neighbourhoods with bad schools” The Economist, 12-3-2005


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Number of Grade 9 and 11 learners in the district having access to career guidance


Proportion of children in the municipality/district attending registered Grade R classes


Proportion of Grade 3, 6 and 9 learners who score above the target level for numeracy and literacy


Improvement in the level of enrolment of ABET learners in Level 1-4 exams

In addition, a local discussion would include qualitative reports on:

• How the municipality actively promotes involvement in the annual learning Cape Festival.

• The number and use of Multi-Purpose Community Centres (MPCC) located in communities.

• The number of RED door offices in the municipality and their usage. The IDP is the vehicle Learning indicators can show a local authority where it needs assistance. They may provide a lobbying tool. But the best route for indicators to make an impact upon learning in a community is through the Integrated Development Planning (IDP) process. The IDP emerges as the natural tool for the province – and the local authority – to use in pursuing the characteristics of a learning province. The IDP is the appropriate implementation vehicle for the Learning Cape indicators.

What is the IDP Process? The IDP is a locally driven strategic planning process which every municipality needs to undertake. It guides the activities of the municipality and determines which projects will be funded in the financial year . The IDP is reviewed annually to ensure that the municipality is on the right track. The IDP sets out in detail the needs of the community, and how they are prioritised. It outlines the strategies the local authority intends to follow to meet priority needs over the 5 year planning term of the IDP. It sets out the projects that the local authority intends to support. Ultimately, the IDP provides the framework for the full municipal budget.


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The IDP also has a social dimension. For the best local authorities in the Western Cape, the IDP process starts at the ward level. Ward committees meet monthly to consider a range of civic issues. Members of the ward committee may include a pre-school teacher, a high school principal, a librarian, the leaders of local NGOs and ratepayers associations, business people and even youth. People with a deep local knowledge share their ideas and experiences at the IDP Representative Forums which the municipality convenes on a regular basis. The IDP is drawn up by council officials, under the oversight of the elected local politicians. It has to be passed by the local council before the annual budget is tabled. The IDP provides a forum that surfaces all the developmental needs of the community. The council itself has to choose which of these needs it can meet and how. The role of the province in the IDPs The IDP process accords a very important role to the province. The Framework Agreement on Growth and Development in the Western Cape (2003) recognises the need for better links between the IDPs and provincial policy and states:

…it is government’s role to ensure effective provincial-municipal co-operative planning and budgeting through a provincial growth and development strategy (PGDS) that is aligned with the annual municipal integrated development plans (IDPs), which specifically support sector development strategies at the local level… (Section 6.1.1)

The IDP process is designed to be multi-sectoral. It should be an icon of “joined-up” government. The IDP Representative Forum in each community is able to draw on the input of parastatals, relevant provincial departments, local educational institutions as well as community-based organisations. The role of the province is envisaged as an active partner with local government in attuning the allocation of funds and efforts to make the biggest impact upon delivery. The IDP Guidelines are clear on the role the province should play in the process (IDP Guidepack 1; 1998):

“The provincial sphere should provide: • a more specific framework, i.e. a joint point of reference for all

sector departments and all municipalities consisting of: o a provincial development strategy with mid-term objectives

and targets for public investment and services within a province (including a mid-term financial framework for investment and regionally adjusted minimum standards and norms) and with provincial-scale projects and programmes; and

o a spatial macro-framework for all sectors and municipalities.


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The provincial framework may include specifications of the national legislative framework related to certain well-defined minimum requirements that reflect regional conditions”.

Currently, the province limits its involvement in IDP processes to reading and commenting upon draft IDP documents. There is a need for the province to engage actively, for example by assigning capable staff with mandated decision-making powers to represent the province within the IDP process. Currently, the tendency is to allocate lower levels of staff who cannot participate effectively. The needs are felt at the local level while most of the funds are controlled at the provincial and national levels. The responsibility is on the province to bridge this divide and to apply its resources, fairly, in a way that is aligned with the priorities identified in the IDP. In relation to the IDP, the Learning Cape Indicators offer an opportunity in that they allow a flow of information and discussion between province and local authorities, and internally, with community organisations and institutions concerned with learning.

Learning and HRD in IDPs Human resource development concerns within IDPs are traditionally inward focused. The municipality sets out in the IDP how it will develop the capacity and capabilities of its own employees. In many cases, this has an important local effect, because local government is the largest formal employer in many jurisdictions. While schools and educational institutions are important components within the community, municipalities have a very limited role in their existence. These are national or provincial responsibilities. Learning features within the IDP through its communication strategy. This aims to inform all communities of the goals and intentions of the IDP and, in support of it the municipality may fund pamphlets or meetings on issues such as HIV/AIDS, public transport, support for small business and the indigent and procurement policies. The IDP tries to favour the emergence of vibrant communities, well-schooled in democratic and participatory traditions. This is partly why municipalities are natural partners in the Learning Cape Festival and why allying the IDP process to Provincial resources would be such a powerful tool in the development of the Learning Cape.


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The role of learning in the MEDS The MEDS has identified the growth sectors where the Western Cape will reap the greatest benefits from investment over the next decade and more. In every single case, success rests upon the skills of the people. The sectors that are being promoted do not exist in the air – each enterprise exists within a local authority. The need for local learning is defined to a large extent by the sectors which each can reasonably attract and expand. In driving the MEDS, the DED needs to be extremely concerned about the skills base. If it is wise, the DED will not only focus on the specific training needs of one investor or another15, but encourage an improved learning environment, in concert with local authorities and community organisations and with other departments. This will meet a need for flexible learning opportunities, for life-long learning. The DED has already taken a bold step with its RED Door Initiative. This aims to place at least one Real Enterprise Development office in every municipality in the province. Learning is the theme behind the RED Door approach. It is targeted at entrepreneurs and small business. It will provide a useful seed for growth immediately, but in the long term the RED Doors will only succeed if they are able to give advice and arrange assistance for more people who have completed secondary education with maths and science passes. Entrepreneurship in the province depends upon a sound and broad base of learning. This is the hugely significant finding of the Global Entrepreneurship Monitor (GEM) studies. The need is for the DED to work with the WCED, the Department of Cultural Affairs and Sport, the Department of Health and Department of Social Services and Poverty Alleviation, in particular, in building a better environment for learning in our communities. The Learning Cape Indicators can be an implementation tool to assist this process

The role of the Learning Cape Indicators By bringing the Learning Cape Indicators into the IDP representative forum discussions, the DED can begin to empower local government to make learning a real part of its developmental concerns. The province can assemble information of the indicators at local level and feed this into the IDP process. It is the responsibility of the province to show how the concerns with learning are inter-related with economic development and with social development. Support for bridging social capital and the building of learning networks improve the fabric for learning and progress across the community. 15 Specific skills training requirements for investors are funded by the Skills Support Programme of the Department of Labour which is available to successful applicants for funding from the Small and Medium Enterprise Development Programme of the DTI.


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The Learning Indicators invite an exchange of information. Provincial statistics can be compared with locally assembled data. Some indicators will only be known at the provincial level. Revealing these locally, and through the structure and authority of the IDP process, can be very empowering for the local community. It can illustrate their needs and add new dimensions of understanding to their perceptions on what the real local priorities are. If the Province accepts the direction proposed in this report, it would therefore need to:

− Make provincial information on learning indicators available at a local level.

− Capacitate local structures to interpret the data and to gather further

details to understand it. The indicators are not all calculable at present – but those that are allow the discussion to begin. This is especially true for the “bedrock” indicators which relate directly to the reality and the real experience of parents and learners in every municipality. The Report suggests that six learning indicators are calculated initially for use in the type of interaction envisaged with the IDP. The IDP is put forward here as the way that the DED/province take the concepts of the Learning Cape to the local level, using the Learning Indicators as a tool. The Learning Cape Indicators are a way of putting the role of learning and the learning environment onto the local agenda. They are a way of broadening the reach of iKapa Elihlumayo. By making the pursuit of learning part of the planning and resource-marshalling process of broad based community development, the province will strengthen the fabric of our democracy. .

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Abbreviations ABET Adult Basic Education and Training AGOA African Growth and Opportunities Act ALC Adult Learning Centre ANTA Australian National Training Authority ASS Annual School Survey CAA Cape Administrative Academy CBO Community Based Organisation CDE Centre for Development and Enterprise CESM Classification of Education Subject Matter (22 categories) CHE Council on Higher Education CHEC Cape Higher Education Consortium CHED Centre for Higher Education Development ???, UCT CITI Cape Information Technology Initiative CMA Cape Metropolitan Area CMC Cape Metropolitan Council COSATU Congress of South African Trade Unions

CPUT Cape Peninsula University of Technology (2005 merger of Pentech and CapeTech)

CSIR Centre for Scientific and Industrial Research CSS Central Statistical Service (now known as Statistics South Africa) DACST Department of Arts, Culture, Science and Technology DBSA Development Bank of Southern Africa DCD Department of Constitutional Development

DEAAT Department of Economic Affairs, Agriculture and Tourism, Western Cape (now the DED)

DED Department of Economic Development, Western Cape (formerly the DEDT)

DEDT Department of Economic Development and Tourism, Western Cape (now the DED)

DLL Division for Lifelong Learning, UWC

DMO Destination Marketing Organisation (formerly the JMI - Joint Marketing Initiative) - now Cape Town Routes Unlimited

DoC Department of Communication DoE Department of Education DoL Department of Labour DPSA Department of Public Service and Administration DTC Departmental Training Committee DTI Department of Trade and Industry - now the dti ECA Electrical Contractors Association ECD Early Childhood Development EDC Export Development Centre EMIS Education Management Information System EPWP Expanded Public Works Programme ESDLE/A Employment and Skills Development Lead Employer / Agency ETA Education and Training Authority EU European Union FAQ Frequently Asked Questions FET Further Education and Training FETMIS Further Education and Training Management Information System FFC Financial and Fiscal Commission


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FRD Foundation for Research Development G & A Cluster Governance and Administration Cluster GDP Gross Domestic Product GDS Growth & Development Summit (provincial & national GEAR Macro-Economic Strategy for Growth, Employment and Redistribution GEIS General Export Incentive Scheme GEM Global Entrepreneurship Monitor (GEM) GET General Education and Training GETC General Education & Training Certificate GRP Gross Regional Product HE Higher Education HEMIS Higher Education Management Information System HR&SD Human Resource and Skills Development HRD Human Resource Development HRD-CC Human Resource Development Co-ordinating Committee HRDS Human Resources Development Strategy HSRC Human Science Research Council ICT Information and Communications Technology ICT/IT Information Communications Technology / Information Technology IDC Industrial Development Corporation IDP Integrated Development Planning IDT Independent Development Trust IGF Inter-Governmental Forum IIP Investors in People ISDP Individual Staff Development Plans IT Information Technology JSE Johannesburg Stock Exchange KMO Key Measurable Objective LCF Learning Cape Festival LED Local Economic Development LGTA Local Government Transition Act LRA Labour Relations Act LSM Learner support materials MEC Member of the Executive Council (of the Provincial Governments) MEDS Micro Economic Development Strategy, Western Cape MERS Micro Economic Reform Strategy (National Government) MINMEC Ministerial Forum (of national Ministers and Provincial MECs) MIT Massachusetts Institute of Technology MoU Memorandum of Understanding MPCC Multi-Purpose Community Centre MRC Medical Research Council MST Mathematics, Science and Technology MTEF Medium Term Expenditure Framework NAFCOC National Federation of Chambers of Commerce NAFU National African Farmers Union NCHE National Commission for Higher Education NCOP National Council of Provinces NEDLAC National Economic Development and Labour Council NEPAD New Partnership for African Development NEPI National Education Policy Initiative


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NGO Non-Governmental Organisation NMSTE National strategy for maths, science and technology education NPI National Productivity Institute NPO Non Profit Organisation NQF National Qualifications Framework NRF National Research Foundation NSDS National Skills Development Strategy NSF National Skills Fund ODA Organisation Development Africa OSW Office on the Status of Women PAWC Provincial Administration of the Western Cape PDC Provincial Development Council PE&VC Private Equity and Venture Capital PEI Presidential Education Initiative PEP Provincial Executive Programme PIRLS Progress in Reading Literacy Study PRC Presidential Review Commission PSC Public Service Commission PSDF Provincial Skills Development Forum PSETA Public Sector Education and Training Authority PSTF Public Service Trainers’ Forum PTM Provincial Top Management PTPDC Provincial Training and Personnel Development Committee QMS Quality Management System R&D Research and Development RDP Reconstruction and Development Programme RPL Recognition of Prior Learning SABS South African Bureau of Standards SACOB South African Chamber of Business SADC Southern African Development Community SAILI Scientific and Industrial Leadership Initiative SALGA South African Local Government Association SAMDI South African Management Development Institute SANCO South African National Civics Organisation SAPSE South African post-secondary education SAQA South African Qualifications Authority SARS South African Revenue Services SATOUR South African Tourism Agency - now South African Tourism SD Skills Development SDF Skills Development Facilitator SDI Spatial Development Initiative SEDA Small Enterprise Development Agency SEMP Senior Executive Management Programme SET Science Engineering and Technology. SETA Sector Education and Training Authority SGB School Governing Body SGB Standards Generating Body SIC Standard Industrial Classification SME Small and Medium Enterprise SMME Small, Medium and Micro Enterprise


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SMS Senior Management Service SSP Sector Skills Plan TIMMS Trends in International Mathematics and Science Study UCT University of Cape Town UWC University of the Western Cape WCED Western Cape Education Department WCII West Coast Investment Initiative WCPA Western Cape Provincial Administration WCPG Western Cape Provincial Government WESGRO Western Cape Investment and Trade Promotion Agency WL Workplace Learning WSP Workplace Skills Plan WTO World Trade Organisation The SETAs - 2005 acronyms BankSETA Bank SETA CHIETA Chemical Industries ETA CTFL SETA Clothing, Textiles, Footwear & Leather SETA CETA Construction ETA DIDTETA Diplomacy, Intelligence, Defence & Trade Sector ETA ESETA Energy SETA ETDP SETA Education, Training & Development Practices SETA FASSET Financial & Accounting Services FOODBEV Food & Beverages Manufacturing Industry SETA FIETA Forestry Industries SETA H&WSETA Health & Welfare SETA ISETT Information Systems, Electronics & Telecommunication Technologies INSETA Insurance SETA LGWSETA Local Government, Water & Related Services SETA MAPPP SETA Media, Advertising, Publishing, Printing and Packaging MQA Mining Qualifications Authority MERSETA Manufacturing, Engineering & Related Services ETA POSLECSETA Police, Private Security, Legal and Correctional Services SETA DIDTETA Diplomacy, Intelligence, Defence & Trade Sector ETA PSETA Public Services ETA PAETA Primary Agriculture ETA SETASA Secondary Agriculture SETA ServicesSETA Services SETA THETA Tourism, Hospitality & Sport ETA TETA Transport ETA W&RSETA Wholesale & Retail SETA SETA’s to be amalgamated in 2005


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References This reference list excludes confidential government documents which the consultants were requested not to cite or quote. Reports produced during the project: Developing & Implementing Lifelong Learning Policy - Indicators for a Learning Cape Report 1: Best practice and benchmarking indicators of learning for the

Western Cape Province - Part 1: International Background on Indicators (compiled by DLL), 29 November 2004

Best practice and benchmarking indicators of learning for the Western Cape Province - Part 2: Available and Collectible Data for Indicators (compiled by ODA), 29 November 2004

Report 2: Towards a Consolidated Instrument for Stakeholder Interactions,

20 January 2005 Report 3: Account of Internal Engagements with the DED on the Learning

Cape Indicators, 16 March 2005 Report 4: Consultative Policy Discussion Document, first draft, 31 March

2005

Synopsis Report, April 2005 Mabunda, S. (2005) “Data on Learning and Educational Efficiency and

Effectiveness in the Western Cape: An annotated bibliography and reference guide”. Document prepared to support the project on Indicators for a Learning Cape, while fulfilling the requirements of an internship with the Department of Economic Development.

Bibliography Aitchison, J. (2002) “Building ABET – accurate statistics?” (Unpublished paper,

November 2002, a strong critique of DOE “Building an ABET System: the First Five Years, 1995 – 2000”.)

Aitchison, J., Houghton, T. and Baatjes, I. with Douglas, R., Dlamini, M., Seid, S. and Stead, H. (2000). University of Natal survey of adult basic education and training: South Africa. Pietermaritzburg: Centre for Adult Education and Department of Adult and Community Education, University of Natal, [Available on line] URL: http://www.edu.unp.ac.za/CAE/CAEPubs/JETRES2SA.pdf


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Aitchison, J.J.W. and Harley, A. (2004). South African illiteracy statistics and the case of the magically growing number of literacy and ABET learners. Pietermaritzburg: Centre for Adult Education, University of KwaZulu-Natal http://www.ukzn.ac.za/cae/caepubs/JJWA&AH2004 Magic.pdf

Anon (2005) “Province, City to Build Entrepreneurial Skills”.Cape Times, 11 March 2005

Anon (2005) “Setas failing to create employees- ANC” Cape Times, 18 January 2005

Anon, (2003) Skills “Report Slammed. Cape Argus. November 2003”.[Available Online] URL: http://www.busrep.co.za/index.php? fSectionId=970&fArticleId=295027 accessed 18-1-2005

Asmal, K (2002) “Adult Literacy:Meeting the challenges of the Freedom Charter” Umrabulo Number 15, July 2002

Badroodien, A., Andre Kraak & Simon McGrath (2003) Shifting Understandings of Skill in South Africa:Overcoming the historical imprint of the low skills regime Pretoria: HSRC

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Budlender, D (2001) Towards ‘Cape Stats’ – the availability of economic-related statistics in the Western Cape Cape Town: Department of Economic Affairs, Agriculture and Tourism, Western Cape (now the DED), October 2001

Cape Times (2004) “DA Hits at Skills Training Plan”, 26 November Cape Times (2004).”Capacity Guidelines for the Schools” Cape Times,

November 24


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Cape Times (2004).”FET To Get a R3.1bn Boost Wednesday” Cape Times, November 24

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CDE (2004c) “From Laggard to World Class: Reforming maths and science education in South Africa's schools”, Media release, 08 November 2004 [available online] URL:http://www.cde.org.za/pub_cde-research-nov%202004.htm

Chisholm L (ed) (2004) Changing Class: Education and Social Change in Post-Apartheid South Africa (Pretoria: HSRC)R190.00 [available online] URL: http://www.hsrcpublishers.co.za/index.html?changing_class.html~content

Constitution of the Republic of South Africa 1996, as adopted on 8 May 1996 and amended on 11 October 1996 by the Constitutional Assembly, Act 108 of 1996 [Available online] URL:http://www.polity.org.za/html/govdocs/constitution/saconst.html?rebookmark=1

Dasnois, A. (2004) “Stats are vital enough to merit top salaries” Business Report n.d. [available online] URL:http://www.business report.co.za/index.php?fArticleId=2111556 [accessed 16-Nov-04]

De la Rey, C. (2001) “Draft Report on the Review of the Policy and Procedures for the Measurement of Research Outputs”, written for the Department of Education, Pretoria, February, 2001 [available online] URL: http://education.pwv.gov.za/ DoE_Sites/ Higher_Education/doerep3-FINAL%20Web%20version.doc

Department of Education (2000) “South African Curriculum for the Twenty First Century: Report of the review committee on Curriculum 2005 presented to the Minister of Education, Professor Kader Asmal, Pretoria, 31 May 2000”[Available on line URL: http://education.pwv.gov.za/Policies%20and%20Reports/2000_Reports/2005/appendix_2.htm

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Department of Education (2001) Education Statistics in South Africa at a Glance 2001, June 2003

Department of Education (2001) Report on National ECD Policies and Programmes, May 2001 http://www.capegateway.gov.za/ Text/2003/ audit_ecd_policies_programmes.pdf

Department of Education (2004) National Curriculum Statement: Parents’ Guide Grade R-9 (distributed with the Sunday Times 16/1/2005)

Department of Labour (2001) “National Skills Development Strategy April 2001 - March 2005”, February 2001 [Available Online] URL: http://www.saexposed.co.za/webpages/nsdstrategy.htm “Source: Newspaper Supplement

Department of Labour (2005) “National Skills Development Strategy 1 April 2005 - 31 March 2010”

DLL (2001) Developing the ‘Learning Cape’: A paper commissioned by the Department of Economic Affairs, Agriculture and Tourism, Provincial Administration of the Western Cape. Prepared by the Division for Lifelong Learning, University of the Western Cape

DPLG (1998) IDP Guidepack 1 (GTZ) E-Agency (2003) “Western Cape Human Resource Development Strategy: ABET

and Adult Learning Input” Edusource (2004) “Tertiary Enrolment” Edusource Data News No.46, December

2004, pp.19-21 [available online] URL:http://www.edufound.org.za – Edusource, the data-clearing, research and publishing arm of the Education Foundation Trust is the best available source for education data.]

Etkind, R, (2004) “Learning Cape Indicators Project: some international background”, Simukai Consulting, prepared for the Division of Life Long Learning, University of the Western Cape.

Fiske, E.B. and Helen F. Ladd (2004) Elusive Equity:Education Reform in Post-Apartheid South Africa (Brookings Institution Press) Sample chapter:[Available Online] URL:http://www.brookings.edu/press/books/chapter_1 /elusiveequity.pdf;

Fuller et al (2003) “The Impact of Informal Learning at Work on Business Productivity: Final Report to the DTI”, The Centre for Labour Market Studies, University of Leicester, October 2003

Gewer, A. (2004) “Balancing Demand in Further Education and Training: Choices and Realities for Young Learners in the 21st Century”. Paper presented to the Spencer Winter School (18 – 21 August 2004) [base paper edited for Brown and Fölscher (2004)]


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Grove Primary School (2004) “Application for Admission to the Grove Primary School” (mimeo);

Hendry J (2004) [E-mail on HEMIS (Higher Education Management Information System):‘Structure of flat ASCII files to be prepared by institutions’; ‘CESM (Classification of Education Subject Matter) Descriptions’] sent to M Nicol 24 November 2004 – saved as WCAPE HEMIS.doc

Howie, S & Plomp, T (2004) “The importance of national options in IEA international comparative studies: exploring the effects of language proficiency upon secondary students’ performance in TIMSS’99 mathematics in South Africa.” Paper presented at 1st IEA International Research Conference, Cyprus. May 2004, Accessed 14 December 2004. http://www.iea.nl/iea/hq/index.php?id=134&type=1

HSRC (2003) “Social Indicators and the Construction of Composite Indicators” saved as D:\Documents2003\P Literature on Social Indicators~12 May 03.doc

HSRC Danida (2004) “SESD impact study”, September 2004 IIP (2005) “What is Investors in People” www.iipuk.co.uk/ Kahn, M (2004) For whom the school bell tolls, (HSRC) Human Sciences

Research Council Review, V02 No: 03 September 2004, pp 10-11, http:www.hsrc.ac.za

Kassiem, A (2004) “Schools Told to up Pupil Intake” Cape Times, 3 December Kotecha, P (2004) Benchmarking Tests Make Access to Higher Education

Possible for Black Students. Cape Times, 20 December Kraak, A (2003) “HRD and the Skills Crisis” in Research Programme on Human

Resource Development, HSRC (2003) Human Resources Development Review: Education, Employment and Skills in South Africa Pretoria: HSRC

Kraak, A (2003) An Overview of South African Human Resources Development: The Importance of Joined-up Policy Coordination and Implementation: Human Sciences Research Council: HSRC

Lareau A (2004) Unequal Childhoods: Class, Race and Family Life (University of California Press)

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Mabunda, S. (2005) “Data on Learning and Educational Efficiency and Effectiveness in the Western Cape: An annotated bibliography and reference guide”. Document prepared to support the project on Indicators for a Learning Cape, while fulfilling the


39

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Appendices


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Appendix 1: Availability & Quality of Administrative Data to draw upon in framing Indicators for the Learning Cape Categories for indicators Province Region Institution Government Policy Priority

(Municipality / WCED District) (as revealed by

spending)

Socio-Economic Data Good Good - - Initial Learning

Early Childhood Development Poor Poor - Low

General Education Very Good Variable - High and will be maintained

Further Education (schools) Very Good Variable - High and will be maintained

Adult Learning

FET (colleges) Poor, but improving - Poor, but

improving Low but increasing

ABET Extremely poor Extremely poor - Very low

Workplace learning Extremely poor - Very variable between SETAs Extremely high

Only area of high expenditure, but poor data & output

Higher Education Very Good - Excellent Very high, relative importance to be reduced

Diffuse Learning Environments

Poor, except for libraries Variable Very low *

Data Baskets Maths & Language Technology Entrepreneurship and employability

Sources of data vary, as above


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* Library resourcing, after a brief period of improvement, is now threatened by the withdrawal of municipal funding. This is an 'unfunded mandate' - the Constitution makes libraries a Provincial responsibility, but no funds are available to take over the municipal role.

Implications:

Extremely poor Qualitative and process indicators will predominate, due to the lack of administrative data. Some quantitative ball-park indicators may be suggested by the Census/LFS data.

Poor Indicators will be mainly qualitative, with the potential for a few quantitative indicators Good, Very Good, Excellent A balance of quantitative and qualitative indicators is possible Variable Illustrative indicators may be considered, especially at regional/municipal level

Appendix 1 is extracted from Report 1


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Appendix 2: Examples of Bedrock Indicators

Initial Learning

1 Proportion of children 0-4 attending ECD

2 Proportion of children attending registered Grade R classes

3 Proportion of Grade 3, 6 and 9 learners who score above the target level for numeracy and literacy

4 Proportion of learners who enter the system in Grade 1 compared to the proportion of learners who exit the system in Grade 12 Retention of school children

5 Proportion of primary & secondary schools able to report that every learner received at least one textbook in each learning area at the beginning of the current academic year

6 WCape TIMMS and PIRLS results compared to the international average

7 Measure the flow of learners from FET to GET at the appropriate level through the development of a tracking system

8 Proportion of talented learners who are identified before grade 10.

9 Black matric HG maths passes compared to white passes

Adult Learning

10 Improvement in the throughput rate in FET colleges

11 Improvement in the level of enrolment of ABET learners in Level 1-4 exams

12 Proportion of FET learners who qualify to enter higher education


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Appendix 3: Data Sources for Indicators

Diffuse Learning Environments

Indicators using existing data sources

No. Indicator Data Source

1 Establishment of the Learning Cape Initiative (LCI), as a Section 21 Company.

DED

2 Statistics on usage of Multi-Purpose Community Centres (MPCC) in the Province.

GCIS is currently implementing a questionnaire which will produce this data16.

3

Number of schools responding positively to the questions in the Annual Survey of Schools conducted by the WCED on whether the school is used for other learning purposes such as adult basic education, early childhood development or cultural purposes.

WCED

4

Numbers of PITs (Public Internet Terminals) in post offices and Multi Purpose Community Centres and their usage figures.

SAPO collects data on usage disaggregated into the following categories: Internet; email; career; government; education; business17.

5 Number of municipalities that actively promote involvement in the annual learning Cape Festival.

Analysis of the Learning Cape Festival calendar of events, counting the number of municipalities in which events take place.

6

An aggregate of the number of people tested annually in the VoluntaryCounselling and Testing programme and the number of women tested in thePrevention of Mother To Child Transmission programme.

Department of Health18

7 Number of educational organisations able to provide learners with daily access to web-linked computer facilities.

Data on ratio of number of learner-accessible computers to number of learners. HEI and FET College data to be accessed directly from the institutions; school data available from WCED.

Indicators requiring collection of new data

8

Number of local government areas describing themselves as learning communities by committing to specified learning targets.

Data to be gathered annually as part of the Learning Cape Festival. Learning communities to be defined as either wards or municipalities.

9 Average number of hours libraries in the Western Cape are open per month. Telephone survey of sample.

16 Contact Louis Botha: [email protected] 17 See website: http://www.doc.gov.za/PIT_Sumry.htm; 012 401 7351 18 Information on data from Trish de Villiers: [email protected]


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10 Proportion of people living in the Western Cape who are able to travel using public transport after 20h00.

Create a sample of areas ensuring a range of socio-economic and geographical areas and analyse the rail and bus timetables and information from the Provincial Council of Taxi Associations19 for each area.

Initial Learning

Indicators using existing data sources No. Indicator Data Source

11

Proportion of children recognised as vulnerable in terms of their weight, cognitive and physical development, HIV/Aids status or poverty level.

Provincial Department of Social Development.

12

The number of school governing bodies that have been awarded allocated functions in recognition of their competence.

WCED

13 Number of educators in the Western Cape trained to teach technology. WCED

14 Number of Grade 9 and 11 learners having access to career guidance. WCED

15 Increase in the proportion and range of learners participating in Mathematic Olympiads.

Data to be collected from: Harmony SA Mathematics Olympiad, Living Maths Olympiad, AMESA and UCT Maths Competition.

16 Number of partnerships in schools leading to work shadow opportunities WCED

17

Establishment and effective functioning of a structured intersectoral body to facilitate more effective provision for all children aged 0 -9 years in the W. Cape.

A query to provincial government departments and NGOs working in the field. If the body has been established, respondents to be asked for a rating of effective functioning and inclusiveness.

19 Contact Secretary of the Council, Vernon Billet: 021 696 3213


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Adult Learning

Indicators using existing data sources

No. Indicator Data Source

18

A rise in absolute numbers & proportion of employees in skilled categories of work & a fall in the numbers and proportion in the unskilled category ‘elementary occupations’.

Stats SA’s Labour Force Survey (LFS 2004).

19 A rise in the absolute number of completed learnerships at FET colleges.

FETMIS. Perhaps to be broadened beyond FET colleges as reliable data becomes available

20

The number of learnerships completed, in association with FET colleges, which contain a module on numeracy, mathematics or mathematical literacy

FETMIS

21 Number of RED door offices in the province and their usage. DED

22 Number of registered training programmes developed at NQF 5 level to meet development needs of priority sectors.

Data request from UMALUSI on number of registered NQF level 5 programmes in the following sectors: Tourism; Metals & Engineering, Fishing and Mariculture, ICT, Agriculture and Aquaculture, Clothes and Textiles, SMMEs.

23

The Graduation Rate of African, Coloured and female learners in Higher Education compared with White, Indian and male learners.

HEMIS


24

All SETAs produce reliable baseline provincial data identifying key inputs to and outputs from their workplace learning programmes

SETAs are unlikely to produce this data spontaneously. However, the Department of Labour is currently engaged in a research project to respond to the expressed need for provincial data20.

25

Increase in the number of learners assessed in ABET programmes in the Western Cape that are funded by SETAs and EPWP.

Data to be collected on successful learners from IEB, WCED and DOE and then providers to be contacted to identify funding of the learners.

26

Proportion of FET learners who spend 10% or more of their time during the year exposed to the work environment – via placements, internships, learnerships etc –as part of their course of study.

Data to be collected from a sample of FET colleges in the province.

20 Dr Florus Prinsloo, DoL Director for SETA Co-ordination: 012 309 4873 or 082 883 7361


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27

The establishment and effective functioning of a provincial forum of HE, social partners and other relevant parties to plan the integration of provincial growth and development targets into higher education and training programmes and research.

A query to HEIs and parties to the PDC. If the body has been established, respondents to be asked for a rating of effective functioning and inclusiveness

28 The number of partnerships amongst HEIs and between them and priority sectors.

Survey of the HEIs in the province. See indicator 22 for list of priority sectors.

29

A survey of employees and employers is commissioned and implemented annually to investigate both formal and informal learning opportunities for employees in the workplaces of the Western Cape.

Such surveys are conducted telephonically in the UK (Fuller et al 2003) and a provincial survey could be based on these.

30

Effectiveness of networking between initiatives providing informal and non-formal opportunities to develop an interest in general mathematics in learners, educators and workers.

A telephonic survey to South African Mathematical Society (SAMS), Scientific and Industrial Leadership Initiative (SAILI) and the Shuttleworth Foundation asking for a rating of effective networking.

Desirable indicators, but no viable source No. Indicator Data Source

31 Number of Western Cape residents visiting public educational facilities. (Diffuse learning)

A list of such facilities would need to be compiled (it would include, for example, Iziko Museums and National Parks) and then the data collected. The majority of National Parks only collect data on raw numbers of people entering as they have found that obtaining any more detail leads to traffic jams.

32 Educational programmes as a percentage of total programmes on local radio stations. (Diffuse learning)

Preliminary data can be obtained from South African Advertising Research Foundation. The central problem here is defining ‘educational’.

33 Number of parent enrichment groups in existence. (Diffuse learning)

These are provided, for example, by faith based organisations, health and welfare departments and NGOs. The absence of any centralising organisation makes data collection problematic.

34 A greater absolute amount and proportion of SETA grants is spent on SMMEs (Adult learning)

This data is dependent on the success of indicator 24.


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Examples of Bedrock Indicators

Initial Learning

Indicator Data Source

1 Proportion of children 0-4 attending ECD

WCED have an additional goal to ensure an integrated approach to the physical, social and cognitive development of all 0 to 4 year olds living in the province

2 Proportion of children attending registered Grade R classes

WCED have the goal of providing quality tuition so ready for school learning, but this is difficult to measure

3 Proportion of Grade 3, 6 and 9 learners who score above the target level for numeracy and literacy

WCED

4 Proportion of learners who enter the system in Grade 1 compared to the proportion of learners who exit the system in Grade 12. Retention of school children

WCED currently monitor this and are implementing computerised tracer system

5 Proportion of primary & secondary schools able to report that every learner received at least one textbook in each learning area at the beginning of the current academic year

Would require analysis of existing data

6 WCape TIMMS and PIRLS results compared to the international average

Would require analysis of existing data

7 Measure the flow of learners from FET to GET at the appropriate level through the development of a tracking system

WCED plan to implement a computerised tracking system of their learners

8 Proportion of talented learners who are identified before grade 10.

Would require new analysis of existing data

9 Black matric HG maths passes compared to white passes

WCED

Adult Learning

10 Improvement in the throughput rate in FET colleges

FETMIS

11 Improvement in the level of enrolment of ABET learners in Level 1-4 exams

WCED

12 Proportion of FET learners who qualify to enter higher education WCED


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No. Area Additional information on data sources

7 Libraries

A partial list, covering most libraries outside Cape Town, is given at: http://www.capegateway.gov.za/eng/directories/facilities/130 Library hours from Cape Town Libraries are all available online at http://www.capetown.gov.za/libraries

11 Vulnerability of Children

The Social Research Unit of the Department of Social Services and Poverty Alleviation is currently able to provide information on the poverty index at a localised level. This index can be used to assess the extent to which some vulnerable children are being identified. The data is based on the 2001 census and correlated with information from the Primary Health Care Clinics.

12 Allocated powers of SGB

This makes reference to the section on allocated functions of governing bodies as described in Section 21 of the Schools Act of 1996. Data can be obtained from the finance department of WCED.

13 Technology educators

This data should be obtainable from the WCED Subject Adviser for Technology, Dirk van Rhyn.

14 Career guidance

Career Guidance is a compulsory part of the Life Orientation syllabus for grade 10 – 12 learners in the new OBE FET curriculum. The first group will enter grade 10 in 2006. This data would need to be collected from the WCED Subject Adviser for Life Orientation, Trotsky Jacobs. WCED has career guidance link: http://www.youth portal.org.za

16 Work shadow

This data would need to be collected, possibly from the WCED Life Orientation subject Adviser.

17 Skilled workers

This data is available in Stats SA’s Labour Force Survey (LFS 2004). The inclusion of both absolute and proportional numbers is intended to avoid registering a false positive movement from this indicator which could result from a simple fall in the numbers of unskilled workers, or a false negative from a simple rise in those numbers.

19 HEIS

UCT already produces a ‘social responsiveness’ report. This indicator is based on the other provincial HEIs following that example. It is intended to be a proxy for the extent to which HEIs help to stimulate innovation and knowledge transfer between researchers and industry (both large and SMME)

24 ABET WCED is examining body for ABET 1-3, DOE for ABET 4. IEB is examining body for ABET 1-4. Both systems are used in the W Cape.

25 FET and work

It would require finalisation in consultation with the FET colleges to reach a common definition of ‘significant exposure’. An FET College in KZN expects 80 hours per year. Hairdressers in W Cape are required to do 200 hours.

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