Report
of the Portfolio Committee on Basic Education on oversight visits to Provincial
Examination Centres, dated 16 November 2010
The Portfolio
Committee on Basic Education, having undertaken oversight visits to various Provincial
Examination Centres, reports as follows:
1. Introduction
1.1 Delegations of the Portfolio Committee
on Basic Education conducted oversight visits as follows:
· On 29
October 2010 a delegation visited the Mpumalanga Department of Education in
Bushbuckridge, one of the province’s four regions, where they visited the
· On 5
November 2010 another delegation visited the KwaZulu-Natal Department of
Education, concentrating on the Umlazi, Ilembe and Pinetown District Offices.
1.2
In the spirit of co-operative governance the Portfolio
Committee had invited the provincial legislatures to accompany the Committee on
its oversight visit.
1.3 The visits followed general concerns
around the maintenance of the Matric Examination integrity, the state-of-readiness and security during these important
examinations. A key issue raised in the past was the leakage of question papers
in
1.4 The purpose of the oversight visits was to
assess the state of security systems for the printing, distribution and storage
of examination question papers. The delegation also aimed to monitor the conduct
of examinations in the provinces, to provide support to the departmental teams
and ensure the delivery of successful and credible examinations, with no or
minimal irregularities. In
1.5 This report provides a summary of the
key issues that emerged from the interaction with officials of the national
department and provincial departments as well as the committee’s deliberations,
observations and recommendations.
2. Delegations
2.1 Portfolio Committee on Basic Education:
The delegation to Mpumalanga: Ms M T
Kubayi MP (ANC) (leader of the delegation), Ms A C Mashishi MP (ANC), Ms N Gina
MP (ANC), Ms F F Mushwana MP (ANC), Mr J J Skosana MP (ANC), Ms A Mda MP
(Cope), Mr N M Kganyago MP (UDM) and Mr K J Dikobo MP (Azapo).
The delegation to KwaZulu-Natal: Ms M T
Kubayi MP (ANC) (leader of the delegation), Ms A C Mashishi MP (ANC), Ms N Gina
MP (ANC), Mr Z S Makhubele MP (ANC), Ms F F Mushwana MP (ANC), Mr D Smiles MP
(DA), Ms A Mda MP (Cope) and Mr N M Kganyago MP (UDM).
2.2 Parliamentary Staff:
Mr L A Brown
(Committee Secretary), Mr D Bandi (Content Advisor) and Mr J Van Der Westhuizen
(Committee Assistant)
2.3 National Department of Basic Education:
Dr S N P
Sishi (Chief Director: National Examinations, Assessment and Measurement)
2.4 Mpumalanga Department of Education:
Mr B C Mkwinika,
Mr M J Lushaba and Mr M A Mtetwa. Officials deployed from the National
Department: Mr T P Ngwenya (Deputy Director), Dr M D Ramoroka (Deputy Director)
and Mr P D Ngubane (Deputy Director).
2.5
Ms B T
Shongwe (Deputy Chief Whip – Provincial Legislature) and Ms N
Although all
relevant unions were invited only members of the South African Democratic
Teacher Union (SADTU) were represented during this visit.
2.6 KwaZulu-Natal Department of Education:
Mr S Z
Mbokazi (Acting Superintendent-General), Mr T C Makhaza (Manager: Security
Advisory Services), Ms N L Mthembu (Acting Senior General Manager), Mr B
Mthembu (Director: Examinations), Ms N V Mcambi (Acting Manager), M T De Vos
(Provincial Examinations) and D Govender.
The South
African Democratic Teachers Union (SADTU) was represented by Mr P B Mkhize
(Provincial Education Convenor) and Mr N E Shandu (Regional Education
Convenor).
Unfortunately
the KwaZulu-Natal Legislature was not represented during the visit due to a
meeting of the Provincial Portfolio Committee on Education at the legislature.
3. Background and overview of the national
examination system
The national
examination system in
The DoBE
sets examination question papers for the NSC. Printing, packaging and distribution
of the question papers to examination centres is conducted by Provincial
Education Departments (PEDs). The PEDs have further operational
responsibilities which include supervising the writing of the examinations and
the capturing of marks on the Integrated Examination Computer System (IECS).
In keeping
with the General and Further Education and Training Quality Assurance Act, 2001
(Act No. 58 of 2001), another key role player is the General and Further
Education and Training Quality Assurance Council (Umalusi), which quality
assures the NSC examination through, inter alia, moderation of the question
papers and Site-Based Assessment (SBA), monitoring of the conduct of the
examination and standardization of marks.
4. Engagement
with the Mpumalanga Education Department
4.1
Site tour of the storage facilities
Upon
arrival, the delegation was taken on an in-loco site inspection of the storage
facilities at the regional office where members were shown the different storage
facilities which house the question papers and answer sheets. Encouragingly,
security measures were intensified in the storage facilities since the last
visit. The operations room which housed the surveillance monitor captured all
footage from the surveillance cameras stationed around the facility’s entry and
exit points. These images were recorded on the computer hard-drive and were
accessible for up to 3 months. It was explained that the hard-drive was checked
on a daily basis with a back-up system in the event of a power failure. It was
explained that the system ran for twenty-four hours per day. The delegation was
happy that the operations-room was operated and manned by officials from the
department and not a security company. It was agreed that no system was
foolproof and that officials remain vigilant in monitoring security at the
facility.
All question
papers were distributed from this central point to all the different
circuits/clusters. Although the boxes of question papers were opened to check for
actual content, none of the satchels containing the question papers were ever
opened or tampered with. These satchels were only opened at the examination
centre on the day of the examinations. It was mentioned that a truck with question
papers had overturned that morning but that no-one was seriously injured.
Contingency plans ensured that question papers had arrived at the relevant
examination centre without having been tampered with.
4.2
Progress of the conduct of the 2010
NSC Grade 12 Examination
Members received
a broad briefing on the progress of the writing of the 2010 National Senior
Certificate Examinations throughout the country, with a breakdown of the
numbers of learners registered (also per province). The examinations had commenced
exceptionally well with no serious problems reported to date for the question
papers.
At
In the case of all
question papers written, the learner answer scripts were collected and sealed
in tamper proof envelopes and returned on the same day to the Regional offices
for safe storage. These answer scripts were stored under secure conditions and
access to these scripts were limited to specific officials. The DoBE was
monitoring the examinations on a daily basis and a visit to specific
examination centres was scheduled during the course of the examination process.
A team of monitors from the DoBE has been deployed to all provinces to ensure
that the examinations were being administered in accordance with the prescribed
policy.
In the case of the
In general the
examinations were proceeding relatively well so far and the DoBE was confident
that the 2010 examination would be successfully implemented without serious
disruption or irregularities.
4.3 Members Observations.
The delegation was
unanimous in their observation of a marked improvement since their last visit. It was observed
that the deployment of officials to
·
A sense of the overall picture in the province
·
wrong question papers delivered to exam centres
·
any risks identified in the system
·
the co-operation and working relations with the unions
·
what was the impact of only having 6 strong-rooms for 14
districts
In response, Dr Sishi
indicated that a comprehensive report on all the concerns/questions raised
would be made available to the delegation. He indicated that the operational
plan received support and cooperation from all levels including the Executive
in the Province. Although there had been initial challenges with the unions, there
had been considerable improvements including the appointment of markers in
conjunction with unions. The issue of the appointment of a Regional Director
had been resolved amicably. There was the necessary political and union support
for the withdrawal of the national office officials following the training of
local officials. In crucial areas the national department would take more time
to withdraw.
Another area of concern
was the “ghost learners” in the system that needed to be identified and rooted
out.
4.4 Visits to Schools
4.4.1
The Principal
and Chief Invigilator of the Orhovelani High School gave the delegation a brief
history of the school and a broad overview of the learners writing the National
Senior Certificate Exam (255 learners) for 2010. Enrollment figures for the
school consisted of 1 800 learners. The school had recorded a pass rate of 70
per cent in 2009, compared with the average of 34 per cent for the circuit.
Fortunately, the school had recorded no irregularities in respect of the exams
to date. The Chief Invigilator expresses gratitude for the support received
from the District and National Departments of Education. It was mentioned that
the school recorded no more than three pregnancy cases per year (between Grade
8 and 12). Currently, there were two pregnant learners writing the final exams,
with contingency plans in place should they encounter any difficulties.
4.4.2
This school is
one of the largest in the circuit and in 2009 recorded 185 learners in Grade 12
with a pass rate of 46.5 per cent. Enrolment figures for 2010 stood at 192
learners. The principal informed the delegation that there had been no cases of
irregularity during last year’s exams. Currently 131 learners were writing the
Mathematics paper with 62 learners writing the Mathematics Literature paper.
Although there were few challenges, the principal highlighted problems regarding
the Computer Studies examination. Learners had to be transported to other
venues due to lack of computers at the school. This created security issues as
well as a logistical challenge. Although the district was attending to the
problem of the computer shortages, the principal appealed to the delegation and
the Department to assist with obtaining more computers for the school. The
principal indicated that the school had been able to manage and control the
exams efficiently. He also met with the Head of Department and as a result an
extra Mathematics teacher was appointed.
Members were
informed that the school had recorded a 39 per cent pass rate in 2008 which had
improved to 46.5 percent in 2009 – and hoping for a further improved pass rate
for 2010. The delegation was concerned that the principal would be satisfied
with the low 60 per cent pass rate for the current exams.
The
delegation would pursue the matter of the computer shortage at the school with
the department.
5. Engagement
with the KwaZulu-Natal Education Department
The
Acting Superintendent-General welcomed the visit by the delegation and
mentioned that the province prides itself on its code of practice and was
looking forward to succeeding in running a problem free examination. Where any
irregularities were raised, the province aimed to take immediate action. He
reiterated that the province would excel with good results this year.
Dr
Sishi made it clear that the focus of the examinations was for learners to be
able to execute their skills. The Department also acknowledged the positive results
obtained in the last examinations. There was a problem during the Computer
Studies and Information Technology examinations when there were power-outages
in at least five provinces which affected at least 1 200 learners. Fortunately,
there was a back-up paper available and the examinations were a success, except
in
5.1 Report by the Provincial
Examination Irregularities Committee
Mr
B Mthembu, Chairperson of the KZN Provincial Examination Irregularities
Committees, highlighted several issues relating to examination irregularities,
and also the roles and responsibilities of invigilators. Irregularities which
compromise the integrity of examinations included group copying, crib notes,
permitting answers to be copied, unauthorised persons writing for another,
unauthorised examination venues, unauthorised reproduction of question papers
and unauthorised material in the examination room.
The
Code of Practice supplied all the necessary procedures to be followed in
dealing with the different types of irregularities. Irregularities that did
occur and are currently being investigated include the following:
(i)
At the
The
invigilator was able to read out the questions that were unclear from the hard
copy and the candidates were not disadvantaged. Specific attention would be
paid to the marking of these question papers.
(ii)
The Chief Invigilator of the J E
Ndlovu Centre in Pinetown District was found to have a History P1 question
paper in his office during the examination session - with answers to some of
the questions written on the question paper.
The
Chief Invigilator had been suspended and replaced. The investigation of the
case continues.
(iii)
An accident on the N3 highway
prevented some candidates from writing the examination. A report had been sent
to the National Department and the provincial department was awaiting
direction.
(iv)
Of concern was that candidates were
being moved to other examination centres and at the Institute for Computer
Education in South Africa (ICESA) centre where they had to pay R 3000.00 to sit
for the examination. In some cases, these centres were not registered. Although
ICESA has the right to charge candidates, the issues were still under investigation
and not concluded.
The
National Department has given all provinces a deadline of 22 December 2010 for
supplying a comprehensive report on any irregularities that may have occurred
during the examinations. This report would also highlight any actions to be
taken. It was highlighted that
The
Department acknowledged that there was a gap with respect to private exam
centres with exam status. This gap in the policy needed to be tightened.
5.2 Members Observations
The following were observed:
·
the delegation was satisfied that
all seemed to be under control
·
irregularities identified were being
speedily dealt with
·
the province had not learned from
past experience in respect of the power-outages and that not much in the form
of contingency plans were in place
·
In the case of the J E Ndlovu Centre
it was uncertain as to the lack of action being taken against other implicated
individuals.
·
the movement of candidates from one
examination centre (where they had to register) to another (where they were not
registered) was cause for concern.
5.3
Site
Visit to Umlazi and Ilembe Storage Facilities
The
delegation was taken on an in-loco site visit of the Umlazi storage facilities.
Members observed the loading/off-loading bay with vehicular access from the
main road. This area was manned by private security. It was made clear that no
question papers were stored at this facility – as soon as they arrived they were
dispatched. The delegation also inspected the vaults where question papers were
housed and processed. It was significant that this was a first visit for the
provincial departmental officials.
5.3.1 Members Observations
Of
concern were the following:
·
There were no cameras in any of the
strong-rooms or loading bay areas
·
numerous boxes of other material,
not related to the examinations, were placed in the loading areas as well as
the question paper vaults. Someone was operating from a desk within the vault –
an unacceptable situation.
·
There was a huge space problem since
the Umlazi District who shared storage space with the Elembe District.
5.4
Site
Visit to Pinetown District Examination and Assessment Centre
At
this centre, the Examinations Head was given an extra General Assistant whose
main duties included handling the access to the special examinations area.
Members also inspected the loading area as well as the storage facilities for
the question papers and answer sheets. In the eleven years at the centre there
had been one incident where a member of staff had supplied a memory stick with
a trial exam paper loaded to a family member. This gap had subsequently been
closed through the use of coding. The member of staff implicated had the
necessary hearings and after many delays there was an appeal by the union for a
plea bargain for leniency. The member of staff was fined one month without pay
and returned to his post.
The
Head of Examinations pleaded for more staff relative to the extra workload, as
the new directive from the Department required that all scripts should be
delivered and collected on the day of the exam. This was a huge exercise and
put tremendous strain on the workforce. Surveillance cameras were installed at
a cost of R 165 000.00. This allowed recording for up to three months and
continued monitoring 24 hours a day, seven days a week.
5.4.1 Members Observations
Of
concern were the following:
·
It was clear that staff was able to
access the loading area as many vehicles were parked here.
·
Scripts for previous examinations
were still housed in the strong room together with scripts for this year.
·
no cameras were installed in the loading
bay areas.
·
numerous boxes of other material,
not related to the examinations, were stored in the strong-room posing a
security breach.
·
The specific case of a member of
staff found guilty of misconduct but later returned to his post needed to be reviewed.
·
the security risks of bringing
temporary staff into the centre without being vetted was unacceptable.
·
It was important that the Department
take cognisance of the appeal for more staff.
·
From what was observed, it seemed
that the examinations were not being treated with the seriousness they
deserved.
·
There were serious concerns around
the accountability of left-over papers and how they were being handled.
6. Conclusion and Recommendations
6.1 Conclusion
·
Overall, the delegation noted that the
security measures regarding the storage of question papers have been improved
through the use of strong rooms, safes, burglar-gates, burglar alarms, and
security guards in
·
Members were not entirely happy with
what they had observed at Umlazi, Ilembe and Pinetown in respect of storage
facilities.
·
The delegation was impressed that
there had been no notable breaches or irregularities to date in all the
examination centres, and commended the teams responsible.
·
There were serious concerns around
the accountability of left-over papers and how they were being handled.
6.2 Recommendations
On
reflection Members offered the following recommendations:
6.2.1 General (
·
The Department needed to supply a
comprehensive report on the causes of the recent power-outages in the five
provinces, how this was dealt with and contingency plans.
·
The Department should ensure that it
communicates to all provinces the “Code of Practice” document for use as a
guideline.
·
Under-staffing had the ability to
compromise the examinations and featured as a major concern throughout the
visits. The Department needed to address this problem immediately.
·
The issue of unregistered centres
needed urgent attention.
6.2.2 KZN
·
While it was acknowledged that there was a prior
engagement to attend to, the Committee is concerned that senior officials of
the KZN Department of Education left the meeting early during the oversight
without providing adequate replacements. In future, the department should
ensure that senior officials with adequate decision making powers are fully
represented in oversight visits.
·
The turnaround time for the
finalisation of current and outstanding cases needed to be speeded up.
6.2.2.1 Umlazi and Ilembe
·
The Department needed to budget for
further storage facilities and invest in CCTV cameras.
·
There was an urgent need for a
register to control those entering or leaving the secure areas.
6.2.2.2
Pinetown
·
The Department needed to budget for
further storage facilities and invest in CCTV cameras.
·
Loading bays should be free from any
other vehicular activity except for those concerned with the examinations.
·
The staff member found guilty of
misconduct should be moved to another centre.
·
The issue of the security risks of
bringing temporary staff into the centre without being vetted needed to be
addressed.
6.2.3
·
The Department should address the
problem of the computer shortages at the school.
6.3 The
Department expressed that all comments received were fair and that they will be
handled with the seriousness they deserved. Some of the issues would require
immediate action by the Department. It was agreed that a consolidated report,
ratified by the Portfolio Committee would be drawn-up and made available to
all. There was great appreciation for the Portfolio Committee having embarked
on this process of visits to examination centres.
6.4 Appreciation
The
delegation, led by Ms M T Kubayi MP, thanked the National Department and the provincial
management, represented by the senior management of the provincial departments,
for the support given during the oversight visits. She also thanked the
representatives from the Mpumalanga Provincial Legislatures and SADTU for their
presence during the visit, and for having taken time out of their busy schedule
to be a part of the visit.
A special
word of thanks and appreciation went out to the Chief Director, National
Examinations, Assessment and Measurement, Dr S N P Sishi, for his presence
throughout the visits. The Portfolio Committee was unanimous in acknowledgement
of his valued contribution, availability throughout the visits and finally his
willingness and commitment to ensure that the oversight visits were a success.
Report to be
considered.