FLEXIBLE LEARNING PATHWAYS What are FLPs? Why would we want FLPs?

Why is South Africa a good example?

Dr Heidi Bolton & Dr Liapeng Matsau (SAQA), Dr Michaela Martin & Ms Uliana Furiv (IIEP-UNESCO),

Dr Ronel Blom(Independent)

26 November 2020

Contents

• South African context

• IIEP-UNESCO context/ reflections

• Case study of FLPs in South Africa

• Questions

Page 1 of 30

What is a learning-and-work pathway?

• ‘Articulation’• Systemic (linked qualifications, part qualifications, professional

designations, structured workplace learning and other elements within and between country systems)

• Specific (specific arrangements like RPL, CAT, MoU, MoA, and other inter-institutional arrangements that support specific articulation)

• Individual (support for individuals on their learning-and-work pathways through career advice, flexible learning and teaching provision, and a variety of supportive programmes and structures)

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What is a flexible learning pathway?

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Why is SAQA interested in learning-and-work pathways, and why must these be flexible?

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SAQA research and development to support learning pathways since 2009 (NQF Act)

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SAQA partnership research/ development(timeframes, how available, achievements)

• TVET College lecturers (2009-2012, SAQA Bulletin 2015, policy) • Learning-and-work pathways (2009-2012 & 2012-2015,

SAQA Bulletin 2017, summary paper, actual pathways)

• Inclusive RPL model (2009-2015, model, book, all national RPL policy, thousands of RPL candidates)

• Flexible learning and teaching practices (FLTP) (2012-2015, transforming an HEI, a booklet, a poster, deep sharing)

• Articulation: TVET-HE-workplace (2016-2020, National Articulation Baseline Study, developing actual articulation, articulation enablers, wide sharing, SAQA Bulletin 2018, SAQA Bulletin 2019, booklet –plus initiative to strengthen learning pathways: Community Development, Early Childhood Development, Engineering)

Learning pathways in South Africa….

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10

NQF Sub-Framework/

QualityCouncil

NQFLevel NQF Sub-Framework and Qualification Type

NQF Sub-Framework/

QualityCouncil

High

erEd

ucat

ion

Qua

lific

atio

nsSu

b-Fr

amew

ork

(HEQ

SF)/

Coun

cilo

nHi

gher

Educ

atio

n(C

HE) 10

Doctoral DegreeDoctoral Degree (Professional)

9 Master’s DegreeMaster’s Degree (Professional)

8Bachelor HonoursDegree Post Graduate Diploma

Bachelor’s Degree

Specialised OccupationalDiploma

Occupational

Qualifications

Sub-Framew

ork(O

QSF)Q

ualityCouncilforTrades

andO

ccupations(Q

CTO)

7 Bachelor’s Degree Advanced Diploma Advanced Occupational Diploma

6 Diploma Advanced Certificate Occupational Diploma

5 Higher Certificate Higher Occupational Certificate

Gen

eral

and

Furt

her

Educ

atio

nan

dTr

aini

ngQ

ualif

icat

ions

Sub-

Fram

ewor

k (G

FETQ

SF)/

Um

alus

i

4 National Certificate National OccupationalCertificate

3 Intermediate Certificate Intermediate OccupationalCertificate

2 Elementary Certificate Elementary OccupationalCertificate

1 General Certificate General OccupationalCertificate

Revised NQF: SAQA’s Advice to Minister: HEST

11

National Articulation Baseline Study

All 26 public HEIs and 50 TVET Colleges were surveyed;98% response rate.

• ‘Developed articulation initiatives’ have MoA/MoU, established arrangements, transitioning learners

• ‘Emerging articulation initiatives’ have some of the elements of being set up but are not yet fully developed

• ‘Latent articulation initiatives’ are those that were functioning and have, for some reason (e.g. resources, changes to the NQF, etc)

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Reported articulation

Institution type

Developedarticulationscenarios

Emergingarticulationscenarios

Latentarticulationscenarios

Not sure Total no. of articulation scenarios

HEIs 8 9 7 1 25TVETColleges

8 29 13 0 50

Total no. of articulation scenarios

16 38 20 1 75

Articulation enablers 1. Collaborative relationships2. Using the NQF system/ advocacy3. Commitment to formal MoU/MoA, offices/ officers4. Flexible mindset (access, admin, teaching, support)5. Quality teaching & learning6. Career advice7. Strengthen particular pathways at a time8. Critical resources9. Articulation research & development

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Start with learning pathway maps….

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Expansion of higher education - global enrolment doubled from 100 million in 2000 to 221 million in 2017 and is expected to reach 590 million by 2040.

International trends have put FLPs in the policy focus

Diversification of higher education - different types of HEIs, modes of delivery, types of learners emerged as a result.

Yet the Education 2030 Agenda emphasizes flexible leaning pathways for equity and life-long learning

Dimensions of flexible learning pathways

Barriers to developing flexible pathways world-wideSystem factors• A weak policy environment for flexible learning pathways• Administrative fragmentation leading to uncoordinated HE systems• Competition between HEIs discourages collaborationInstitutional factors• Differences between institutions and types of provision, curriculum,

pedagogies and assessment• Institutional culture, hierarchies of prestige and lack of trust between

institutions• Information and guidance missing or ineffective

IIEP-UNESCO’s FLP project

Overarching objective:To produce knowledge and provide evidence-based policy advice to higher education authorities located in different development contexts that are considering building or strengthening flexible learning pathways as an area of reform/ development.

IIEP-UNESCO’s FLP project: research questions

1. What are the policies, regulatory frameworks, instruments and practices that support flexible learning pathways in higher education?

2. How effective are these policies, regulatory frameworks, instruments and practices in establishing flexible learning pathways and building closer linkages within and between HEIs and levels in PSET?

3. How does the establishment of flexible learning pathways influence the access, progression, transfer and completion of those identified as disadvantaged groups in the case countries?

4. What lessons can be learned from the experience of case countries regarding the key enablers and barriers in the implementation of flexible learning pathways?

Mixe

d m

etho

dolo

gy

Stocktaking International survey

Ministries of (higher) education of UNESCO

countries

Baseline information on policies, regulatory

frameworks, instruments and

practices for flexible learning pathways

Case studies8 countries from different UNESCO

regions

In-depth analysis of eight countries that

have developed policies, regulatory

frameworks, instruments and

practices for flexible learning pathways

Carried out by research teams

Carried out by IIEP

Three stages in the research methodology

Eight in-depth national case studiesEurope:Finland, United Kingdom

Asia:India, Malaysia

Africa:South Africa

Latin America:Chile

Arab region:Morocco

Caribbean : Jamaica

Why did IIEP choose South Africa?• Countries were chosen to represent diverse regions with

different stages of implementation and focus regarding FLPs• South Africa is a country with a strong focus on equity, redress

and articulation policies• South Africa has an interesting set of holistic FLP policies

supported through:• NQF policy suite• PSET policies

• In South Africa, FLPs are widely implemented at three levels: (1) systemic (official, joined-up elements of learning pathways), (2) specific (RPL, CAT, MoU, MoA, bridging qualifications, flexible curricula, and others) and (3) individual (diverse forms of learner support)

• South Africa has conducted extensive research and development regarding FLPs and this work has been published in different ways

National policies for flexible learning pathways

• Chile, Finland, India, Jamaica, Morocco, Malaysia, South Africa and the UK

• Shaped by global and local trends: massification, diversification, globalisation

• Balance between human resource development and equity objectives

• Equity groups in focus: cross-cutting categories are income, age, disability, gender, geography and ethnicity

(IIEP-UNESCO, 2020)

Flexiblility in access

• Preparatory programmes:• Preparatory courses between upper secondary level and HEIs

(Finland, Chile, Jamaica)• Preparatory courses at HEIs (the UK; Extended Curriculum

Programme in South Africa)• Transfers:

• National transfers (Finland, Malaysia, Jamaica; CAT in South Africa)

• Internal transfers through inter- and intra-institutional agreements (Finland, India, Chile, Morocco, Jamaica and South Africa)

Flexiblility in access: Recognition of Prior Learning

• Two types:• National system for RPL: Malaysia, the UK, South Africa• Institution-led RPL: Finland, Chile

• In South Africa, RPL has been used as a vehicle for PSET integration. It benefitted equity groups (particularly Black students and women)

• While in many countries RPL is not a mainstream practice, in South Africa, it has become a mainstream route

• RPL for credit is less common due to difference in perceived quality of offerings between HEIs and the difficulty to map different offerings across the studied countries

Flexiblility during studies: mode of delivery and curriculum

• Flexibility in curriculum varies across institutions• Part-time, distance, evening, blended learning provisions in

all case study countries• In South Africa, at case institutions it is delivered through

• part-time study; • extended time-tabling: day/evening classes, repeat

classes;• blended-learning; • supplemental instruction.

Flexiblility towards graduation

• Practices for flexibility towards graduation and transition to the labour market vary across countries

• Some countries support flexibility in degree structure and organisations of studies to enhance graduation and employability

• Provision in studies to enhance employability:• In the UK, there are accelerated degrees that shorten the time to

complete a degree;• In South Africa, the case institutions offer work integrated

learning.

Governance and autonomy for implementing FLPsGovernance framework matters for FLPs !• Administrative fragmentation • Balancing regulation and autonomy to enhance

implementation of FLPs • Implementation of FLPs is similar across HEIs in regulated HE

systems (Jamaica, South Africa, Morocco, Malaysia) • Implementation of FLPs varies across HEIs in decentralised HE

systems (Chile, the UK)

Funding for implementing FLPs

• Government funding mechanisms strongly support FLPs (Jamaica, Finland, India, Malaysia, South Africa)

• In Finland, the new funding model for 2021-2024 rewards collaboration and the offering of FLPs

• Student support can enable access and retention of equity groups in FLPs

• In South Africa, NSFAS subsidises fully the PSET studies of poor and working-class students

Quality assurance and NQFs for implementing FLPs

• QA with focus on the implementation of FLPs (Finland; India, the UK, South Africa)

• Guidelines for implementation of RPL and ODL (Jamaica, India, Malaysia, South Africa, Finland)

• NQFs are important for facilitating understanding and comparability of qualifications

• In South Africa NQF forms the backbone for the implementation of FLPs in the country

Case study of FLPs in South Africa

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Research design

• Qualitative• Documentary review (legislation, instruments)• In-depth interviews (51)

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National policy, instruments,

statistics

Institutional policy,

instruments, statistics

Secondary DataPrimary Data (Interview sample)

Methodology: Primary and Secondary data

13 with senior officials in the NQF partner entities (DHEST, SAQA, CHE) and four bodies

recommended by these interviewees

18One

public university

12 One

public UoT

8 One

private university

Interviews• Categories of interviewees:

– NQF partner officials – NQF partner-recommended– 1 x public HEI (Traditional University)– 1 x public HEI (University of Technology)– 1 x private HEI– Leadership, key functions, students, alumni

• Interviews: – 2 x SAQA researchers– Recorded, transcribed, anonymised

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Documentary analysis• NQF Act + Acts for HE, GENFET, SKILLS, TVET Colleges, Community Colleges White

Paper: PSET (NPPSET + NQF Improvement Plan)• RPL Coordination and Funding Policy (+ Reporting)• Articulation Policy (+ Reporting)• Career Development System Policy (Portal, Helpdesks)

DHEST Policies, Instruments

• NQF Level Descriptors with focus on learning outcomes• Registering qualifications (Registration)• Recognising professional bodies (Recognition)• Recognition of Prior Learning [RPL] (Reporting, NLRD)• Credit Accumulation and Transfer [CAT] (Reporting)• Assessment (DBE, DHET Statistics)• Evaluation of foreign qualifications (Evaluation, Verification)• Verification, Misrepresentation (Public lists)

NQF Policy Suite, Instruments (SAQA)

• Standard setting, Quality assurance, Accreditation, RPL, CAT, assessment (Accreditation)

Quality Council Policies, Instruments

Findings

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• RPL• CAT• Student Support Services• Flexible Learning and Teaching Practices:

• Extended Curriculum Programmes (ECPs)• Supplemental Instruction (SI)• Extended time-tabling: day/evening/weekend classes, repeat classes • Part-time/full-time• Blended-learning• Work integrated learning (transition to the labour market)• (Extended library hours, mentoring, partnering, transport,

accommodation, NSFAS, Fairy Godmother)

Types of FLP in the case institutions

Institutional practices for access and success

Access

Extended Time-tabling

RPL & CAT

Part-time

Success

Blended learning

ECP

Supplemental

Instruction

“I always use the Karate Kid analogy, you paint the floor, you paint the fence [you do the right moves] – and then you can do karate. That really speaks to me. You finish the [RPL] portfolio – these skills were conferred on me without me realising that I

was learning. It’s done wonders”.

Student experiences of RPL

What worked well What requires improvement

1. Robust policy framework and instruments in place and political will in support of FLP.

2. Institutional commitment to the FLP practices.

3. Institutional creativity around FLPs e.g. innovative RPL practices, sound CAT practices, bridging qualifications, gap-fill learning, Fairy Godmother, Supplemental Instruction (SI), mentoring by peers, and others.

4. Positive experiences of FLPs such as RPL reported by beneficiaries.

1. Political will needs to be supported by funding.

2. Balance between institutional autonomy and national policies relating to FLPs addressed.

3. Monitoring individual institutions regarding FLPs.

4. Improved partnerships between HEIs, TVET Colleges, and other entities (the National Articulation Baseline Study showed 75 initiatives nationally).

5. FLP practices need to be implemented in the spirit in which they were intended.

6. Policy coherence in parts.

Overall Lessons

• National level: • Mapping articulation pathways in all sectors.• Taking existing good articulation practices to scale.• Garnering ring-fenced funding for RPL and other FLPs.• Expansion of other TVET and Community College sub-systems.• Expanding the NQF Level 5 space.• Enhancing communication.

• Institutional level:• Enhancing student support in FLPs.• Enhancing the flexibility of curricula.• Enhancing flexible modes of delivery.• Enhancing the flexibility of administration systems.• Expanding articulation initiatives; taking good practices to scale.• Increased incorporation of technology and blended learning.

Priorities for the future

1. Further engagement around the last remaining misaligned aspects of national policies, towards full alignment.

2. Continue existing efforts to integrate public and private Higher Education.

3. Further embed the system-wide culture of articulation. 4. Continue to document and share good articulation practices.5. Continue to strengthen FLPs and flexible provision in existing the

national campaign and expand the national campaign. 6. Revisit the national funding formula for HEI’s, to enable greater

flexibility. 7. Develop further at the national level, the reporting and data

specifications for FLPs.

Recommendations

Closing comments

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49

References (UNESCO)• IIEP-UNESCO website: http://www.iiep.unesco.org/en/our-

expertise/flexible-learning-pathways-higher-education• IIEP-UNESCO (2020). Achieving SDG4: Flexible learning pathways in higher

education. Findings from the international survey. Draft. • Martin, M., & Godonoga, A. (2020). SDG 4: policies for flexible learning

pathways in higher education: taking stock of good practices internationally. URL: https://unesdoc.unesco.org/ark:/48223/pf0000372817

• Moitus, S., Weimer, L., & Välimaa, J. FLEXIBLE LEARNING PATHWAYS IN HIGHER EDUCATION. URL: https://karvi.fi/app/uploads/2020/09/KARVI_1220.pdf

• 2015. Education 2030 Incheon Declaration and Framework for Action for the implementation of Sustainable Development Goal 4. Paris: UNESCO. Retrieved from: https://unesdoc.unesco.org/ark:/48223/pf0000245656

http://www.iiep.unesco.org/en/our-expertise/flexible-learning-pathways-higher-educationhttps://unesdoc.unesco.org/ark:/48223/pf0000372817https://karvi.fi/app/uploads/2020/09/KARVI_1220.pdfhttps://unesdoc.unesco.org/ark:/48223/pf0000245656

References continued (UNESCO)• IIEP-UNESCO website: http://www.iiep.unesco.org/en/our-

expertise/flexible-learning-pathways-higher-education• IIEP-UNESCO (2020). SDG 4: policies for flexible learning pathways in

higher education: taking stock of good practices internationally. URL: https://unesdoc.unesco.org/ark:/48223/pf0000372817

Reference (SAQA-UNESCO)• Bolton, H., Matsau, L., and Blom, R. 2020. Flexible learning pathways

in South Africa: the National Qualifications Framework backbone.Report for the IIEP-UNESCO Research ‘SDG4: Planning for flexible learning pathways in higher education’. Draft.

http://www.iiep.unesco.org/en/our-expertise/flexible-learning-pathways-higher-educationhttps://unesdoc.unesco.org/ark:/48223/pf0000372817

• Republic of South Africa (RSA). 1997. Higher Education Act No. 101 of 1997, as Amended in 1999, 2000, 2001, 2002, 2003, 2010, 2011, 2012, 2016 – see Higher Education Amendment Act No. 9 of 2016, Government Gazette No. 40548, 17 January 2017. Pretoria: Government Printer.

• RSA. 2008. National Qualifications Framework Act No. 67 of 2008. Government Gazette No. 31909, 17 January 2008. Pretoria: Government Printer.

References (South African selection 1 of 4)

• Department of Higher Education and Training (DHET). 2013. White Paper for Post-School Education and Training. Pretoria: Government Printer.

• DHET. 2016. Recognition of Prior Learning (RPL) Coordination Policy. Government Gazette No. 39876, 31 March 2016. Pretoria: Government Printer.

• DHET. 2017a. Articulation Policy for the Post-School Education and Training (PSET) System of South Africa. Government Gazette No. 40545, 13 January 2017. Pretoria: DHET.

• DHET. 2017b. National Policy for an Integrated Career Development System for South Africa. Government Gazette No.40795, 20 April 2017. Pretoria: DHET.

References (South African selection 2 of 4)

• South African Qualifications Authority (SAQA) website: www.saqa.co.za• NQF Policy Suite: www.saqa.co.za• SAQA Bulletin 2016 - NQF challenges, lessons, priorities for the:

https://www.saqa.org.za/sites/default/files/2019-11/SAQA%20Bulletin%2016%281%29.pdf

• SAQA Bulletin 2017 - Learning-and-work pathways for sustainable development: https://www.saqa.org.za/sites/default/files/2019-11/SAQA%20Bulletin%202017%20%281%29.pdf

• SAQA Bulletin 2018 – Articulation initiatives: https://www.saqa.org.za/sites/default/files/2019-11/saqabull18no12019.pdf

• SAQA Bulletin 2019 – Inclusivity: https://www.saqa.org.za/sites/default/files/2020-04/SAQA_Bulletin_2019.1.pdf

• National Articulation Baseline Study Report: https://www.saqa.org.za/docs/pres/2018/National%20Articulation%20Baseline%20Study%20Overview,%20Findings,%20Way%20Forward-Prof%20Lortan%20-DUT%20.pdf

• Articulation between TVET, higher education, work: https://www.saqa.org.za/sites/default/files/2019-11/National%20Articulation%20Baseline%20Study%20Report.pdf

References (South African selection 3 of 4)

http://www.saqa.co.za/http://www.saqa.co.za/https://www.saqa.org.za/sites/default/files/2019-11/SAQA%20Bulletin%2016(1).pdfhttps://www.saqa.org.za/sites/default/files/2019-11/SAQA%20Bulletin%202017%20(1).pdfhttps://www.saqa.org.za/sites/default/files/2019-11/saqabull18no12019.pdfhttps://www.saqa.org.za/sites/default/files/2020-04/SAQA_Bulletin_2019.1.pdfhttps://www.saqa.org.za/docs/pres/2018/National%20Articulation%20Baseline%20Study%20Overview,%20Findings,%20Way%20Forward-Prof%20Lortan%20-DUT%20.pdfhttps://www.saqa.org.za/sites/default/files/2019-11/National%20Articulation%20Baseline%20Study%20Report.pdf

• SAQA. 2020. Strengthening learning pathways in Community Development, Early Childhood Development and Engineering: https://www.saqa.org.za/sites/default/files/2020-05/3rd%20NQF%20Conference%20report-2020%2002%2011ee.pdf

• Council on Higher Education (CHE). 2012. Criteria for Programme Accreditation: http://nr-online.che.ac.za/html_documents/CHE_Programme_Accreditation_Criteria_Revised_2012.pdf

• CHE. 2013. Framework for Qualification Standards: https://nr-online-1.che.ac.za/html_documents/2.Framework%20Qualification%20Standards%20Development_2015.pdf

• CHE. 2020a. Norms and Standards for Certification for the Higher Education Sector in the context of the Higher Education Qualifications Sub-Framework (HEQSF): www.che.ac.za

• CHE. 2020b. VitalStats: Public Higher Education: www.che.ac.za• Cooper, L. and Ralphs, A. (Eds.). 2016. Crossing the lines: RPL as specialised pedagogy:

https://www.saqa.org.za/docs/webcontent/2018/RPL_as_Specialised_Pedagogy_-_Full_Book.pdf

References (South African selection 4 of 4)

https://www.saqa.org.za/sites/default/files/2020-05/3rd%20NQF%20Conference%20report-2020%2002%2011ee.pdfhttp://nr-online.che.ac.za/html_documents/CHE_Programme_Accreditation_Criteria_Revised_2012.pdfhttps://nr-online-1.che.ac.za/html_documents/2.Framework%20Qualification%20Standards%20Development_2015.pdfhttp://www.che.ac.za/http://www.che.ac.za/https://www.saqa.org.za/docs/webcontent/2018/RPL_as_Specialised_Pedagogy_-_Full_Book.pdf

FLEXIBLE LEARNING PATHWAYS �What are FLPs? Why would we want FLPs? Why is South Africa a good example? ��Dr Heidi Bolton & Dr Liapeng Matsau (SAQA), �Dr Michaela Martin & Ms Uliana Furiv (IIEP-UNESCO), �Dr Ronel Blom (Independent) ��26 November 2020Contents �What is a learning-and-work pathway?Slide Number 4Slide Number 5Slide Number 6SAQA partnership research/ development�(timeframes, how available, achievements)�Slide Number 8Slide Number 9Slide Number 10Slide Number 11National Articulation Baseline StudyReported articulationArticulation enablers Slide Number 15Slide Number 16Slide Number 17Slide Number 18Slide Number 19International trends have put FLPs in the policy focusDimensions of flexible learning pathwaysBarriers to developing flexible pathways world-wide�IIEP-UNESCO’s FLP projectIIEP-UNESCO’s FLP project: research questions�Three stages in the research methodology�Eight in-depth national case studies�Why did IIEP choose South Africa?National policies for flexible learning pathways Flexiblility in accessFlexiblility in access: Recognition of Prior LearningFlexiblility during studies: mode of delivery and curriculumFlexiblility towards graduationGovernance and autonomy for implementing FLPsFunding for implementing FLPsQuality assurance and NQFs for implementing FLPsSlide Number 36Research designSlide Number 38InterviewsDocumentary analysisSlide Number 41Slide Number 42Slide Number 43Slide Number 44Slide Number 45Slide Number 46Slide Number 47Slide Number 48Slide Number 49References (UNESCO)References continued (UNESCO)Slide Number 52Slide Number 53Slide Number 54Slide Number 55