A NATIONAL STRATEGY FOR THE IMPLEMENTATION OF RPL: THE WORK OF THE MINISTERIAL TASK TEAM

Transcription

1 A NATIONAL STRATEGY FOR THE IMPLEMENTATION OF RPL: THE WORK OF THE MINISTERIAL TASK TEAM PRESENTATION TO THE SAQA RPL CONFERENCE MICHELLE BUCHLER 24 FEBRUARY 2014

2 Terms of Reference of RPL Task Team (1) Develop a national strategy for the wide-scale implementation of RPL in the post-school sector; Advise on the personnel, training and quality requirements of a national RPLstrategy, including the feasibility, structure and function of a national RPL institute; Advise on the legislative requirements for implementation of the national RPL strategy; Develop an action plan for the implementation of the national RPL strategy;

3 Terms of Reference of RPL Task Team (2) Devise a funding model to support the national RPL strategy that takes into account the interests of the skilled unemployed and out-of-school young people; Advise on the roles and responsibilities of all major relevant parties in the implementation of the national RPLstrategy, including DHETand other state departments, education institutions both public and private, the National Skills Authority, SETAs, SAQA and the Quality Councils; and Advise on any other matter that would advance the systematic application of RPLin the post-school education and training system.

4 Activities undertaken by the Task Team to inform the development of a national implementation strategy Request for written submissions from key stakeholders (5 received) Interactions with SAQA s reference group that renewed the national RPL policy (final version published in March 2013) Key meetings Commissioning of: Review of international and local literature and case studies focusing on the key areas of the terms of reference Research into RPL approaches and practices of the ETQAs Review of related bodies (eg HRDC-SA) and ministerial task teams Review of related SA legislation and policy Review of international funding and resourcing approaches, and analysis of current funding streams/possibilities

5 Key issues emerging (1) RPLis one of a range of strategies within a broader, coherent and integrated lifelong learning system. Therefore, in thinking about a RPL system with RPL centres/providers (in a multiplicity of forms), it is important to link RPL to other services such as career guidance, continuing education and work-based learning opportunities that are in turn linked with labour market intelligence and regional development needs. Purposes of RPL: RPL is not a substitute for education and training, but Contributes to distinguishing a skills gap from a recognition gap Different purposes require different approaches, : eg, youth vs adults, RPL in employment vs RPL in education and training, etc There are issues for RPL implementation within national qualifications frameworks, eg mainstreaming has a tendency to reconfigure its social meanings away from a social justice/redress orientation, and perpetuates a lack of recognition of cultural and contextual forms of knowledge Linked to the above is the role of history and culture in shaping RPL

6 Key issues emerging (2) A separate law for RPL? Or an overarching law that promotes a lifelong learning philosophy and approach within which RPL legislation can be embedded? The above will require inter-ministerial collaboration and the creation of an enabling environment for RPL. A RPL institute? Internationally, there are examples of coordinated support for RPL Current laissez faire approach to RPLis not working, except in sectors/sub-sectors where there is a legislative imperative, egrelating to FAIS implementation If RPLbecomes mandatory, then a RPLcoordinating mechanism or institute becomes necessary to act on that mandate across industry, education and training, and community development sectors Professionalisation of RPL

7 Key issues emerging (3) Costs and proposed funding models RPL is not cheap, although South Africa upholds the principle that RPL should never be more expensive than the corresponding training The issue of the cost to individuals and to organisations when implementing and establishing an RPLsystem is a contentious point across the literature with mixed opinions and findings It must be borne in mind that certain approaches to RPLinherently imply certain costs Much of discourse on costs relates to funding arrangements more broadly and who should pay for RPLassessment the type of resourcing model, fees and charges to individuals are often cited as a reason for poor uptake of RPLand are also prominent in access and equity debates There are broadly 3 approaches to funding: Wholly state-funded State and employer funding State and employer funding with fees Role of donor funding

8 What the SA RPLsystem should aspire to Within a general philosophy and approach to lifelong learning, a national system of RPLwill best develop from well-targeted, differentiated, bottom-up initiatives where a critical mass of enabling factors exist or are in the pipeline, eg: Sound legal framework Well-functioning SETAs Progressive employers in the private and public sectors Active trade unions Committed professional bodies Growing industrial sectors Workforces that include various bands of professional, technical and artisanal workers with pathways between them Partnerships or memoranda of agreement between education and training institutions that address learning pathways and progression opportunities Timely and focused initiatives that can gradually expand and are careful to identify industry needs are both cost-effective and more likely to produce results, especially if conducted on an action research basis

9 What the SA RPLsystem should aspire to (2) While international literature suggests regional and multiagency delivery systems, these may not be appropriate or feasible in the short-term in South Africa, although the geographical location of projects will be an important consideration RPL also needs to align with related social, cultural, economic and political goals, such as: The development of the FETcollege sector, including the upgrading of FET college lecturers and the creation of innovative curricula Addressing both the skills gap and the recognition gap Revitalising the humanities and social sciences Affirming alternative knowledgesand parity of esteem in the context of individual and community development

10 Outline of national RPL implementation strategy 1. Background and context 2. Rationale (key issues and recommendations) 2.1 A national RPL institute is critical as a national coordinating mechanism and driver, to be established over 2 phases The RPL institute is not meant to take over related mandated or legislated functions or bodies but to support those bodies in better executing their RPL related work Some of the roles of such an institute could include: directing and commissioning research (from the national/systemic level to the development of case studies to support implementation and improved practice); programme and project development and management;

11 Outline of national RPL implementation strategy (2) (Possible roles of a RPL institute, cont) engaging in various processes and forawhich may impact on RPL implementation this would include being part of relevant policy development processes; development and management of RPL processes within broader strategic initiatives (such as strengthening RPL within existing career advising services); development and maintenance of a national database of RPL providers and practitioners; capacity building across the system, including» working with the quality councils to develop and/or strengthen criteria and processes for accrediting RPLproviders and practitioners;» establishing a process to develop RPLcomponents within relevant qualifications and part qualifications;» in previously under-resourced constituencies, such as the trade unions;

12 Outline of national RPL implementation strategy (2) (Possible roles of a RPL institute, cont) a strong advocacy and support role; maintaining links and networks with the international RPL community and related developments; articulation of, support for, and dissemination of leading practices including the establishment of a RPLclearinghouse that would house and if necessary develop RPLresources, including advising and assessment resources; and formative and summative evaluation of RPLand RPL-related projects, including developing capacity for internal monitoring and evaluation processes, and encouraging peer-review of processes.

13 Outline of national RPL implementation strategy (3) 2.2A state-and employer-driven funding and resourcing model Principle: no new fiscuscontributions will be necessary the proposed model is based on using more optimally what already exists The 1 st phase of the institute s existence should be primarily state-funded, given government s economic and social development agenda which includes poverty reduction A reduced role for state funding of RPLshould be examined towards the end of the institute s 1 st phase Principle: state funding sources should be diversified while using funding streams that already exist, and that these be sub-sector specific as far as possible

14 Outline of national RPL implementation strategy (4) Further and Higher Education: funding formula be expanded to include RPL programmes QCTO, SETAsand workplaces in terms of the levy grant system Mandatory grants system (through workplace skills plans and workplace training systems) be amended to include RPLas a valid equivalent to undertaking a learning and/or skills programme Tax rebates to employers over and above the workplace skills plan process could be considered The discretionary grant system should be used to support indentified key and/or strategic projects in all sectors, using the SETAs as the sectoral coordinating mechanism A portion of all SETAs discretionary funds should also be directed to the RPLinstitute to support core and cross-cutting activities as SETAsare already spending considerable funds on RPL, but without sufficient impact

15 Outline of national RPL implementation strategy (5) Key and strategic implementation projects: sectoraland provincial/regional RPLinitiatives be driven through identified key and/or strategic (catalytic) projects, which would be scoped and funded outside of the above sources through funding proposals that would target multiple sources, for example, the NSF, participating public and private sector entities and donor funding (see below for recommendations of the project-driven approach) Core funding: the National Skills Fund, which was designed to support national projects, should view RPLas a national project and therefore contribute a portion of its funds to the core and cross-cutting activities of the RPLinstitute as some activities would contribute to the development of subsectors that would not fall under the above funding activities

16 Outline of national RPL implementation strategy (6) 2.3The implementation strategy is driven by key and strategic projects Key and strategic projects be indentified to run parallel to core cross-cutting activities such as advocacy and capacity development Initial suggested projects include: DPSA and Palama to support the implementation of an RPL policy and strategy across the public sector The Community Development RPL project initiated by the Department of Social Development, SAQA and ETDP SETA Supporting the current initiative to RPL artisan aides Developing a rural project in the agricultural sector that includes aspects of community development, indigenous knowledge and food security It is through the project-driven approach that a multidimensional RPLstrategy will need to be developed that is context specific and cohort diverse

17 Outline of national RPL implementation strategy (7) 2.4 The implementation strategy is underpinned by extensive advocacy and capacity development RPLneeds to be underpinned by a coordinated advocacy and education process this must be one of the core tasks of the RPL institute The system needs to be capacitated at all levels Professionalisationof RPLpractitioners is key and must be supported by the development of appropriate qualifications and CPD activities 2.5 Incremental quality development of the RPL system 3. Vision for RPL implementation 4. Overall objective: to ensure that over the next 5-10 years, RPLwill be embedded within the education, training and development sector with significant improvements in the availability of RPL services across sectors and regions, alongside a significant increase in the numbers of people who have participated in RPL processes

18 Outline of national RPL implementation strategy (8) 5. Cross-cutting and supportive activities and principles 5.1 Inter-Ministerial/departmental coordinating mechanism and support 5.2 Extensive buy-in of key roleplayers and stakeholders 5.3 Legislative and regulatory framework 6. Objectives, sub-objectives and activities: a high level action plan Task Team has assumed that a process of public engagement would need to take place in order to finalise the work of the coordinating mechanism Which may mean that some of the above framework and recommendations may change, and that Revised objectives, activities, roles and responsibilities will need to be further discussed, negotiated and agreed with relevant roleplayersand stakeholders Therefore, the Task Team has developed what it considers to be a highlevel action plan that will become more detailed through a deeper consultative process to refine the national implementation strategy

19 Process/where to next The Task Team undertook its work between Jan 2012 and March 2013 The report was gazetted in mid 2013 for public comments

20 Process/where to next The White Paper for Post-School Education and Training indicates the following: Redress remains an important principle The MTT report will be used to develop a revised set of guidelines to work developing a common understanding and approach across post-schooling The priority is to continue to improve ways in which individuals can receive credits for prior learning towards a qualification A national strategy is required to embed RPL in the education and training system There must be a significant improvement of RPL services across sectors and regions The strategy must include the establishment of a coordination mechanism for RPL