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Policy Summary
An evaluation of Western Cape Government Transversal Skills Interventions in
supporting Economic Growth and Jobs was conducted for the period 2011- 2014.
The evaluation sought to answer key evaluation questions pertaining to the
mismatch between scarce skills required by key economic sectors in the Western
Cape economy and skills supplied through the skills development interventions of
the Western Cape Government.
In response to the jobless growth of the Western Cape economy and recognizing
that high unemployment is largely a function of lackluster economic development
and that skills development is a strategic imperative in terms of quality labour
supply, the Western Cape Provincial government set Provincial Strategic Objective 1
to address economic development and job creation.
The evaluation of the skills development interventions revealed that two-thirds of
the unemployed in the Western Cape do not have a Grade 12 education yet most of
the skills interventions are targeting Grade 12 and up.
The evaluation also revealed the following:

That scare skills occurs at different levels from elementary through


intermediary to higher level skills, and that any skills strategy or programme
should be calibrated and consist of different projects or interventions each
targeting scarce skills requirements at different levels, recognizing that the
majority of unemployed will be located at the elementary level with no Grade

12 education.
Though Western Cape Government interventions addressed skills needs of
key economic sectors of the Western Cape economy, the challenge remains
how to achieve the right quantum or critical mass in terms of numbers

trained / skilled at the right levels.


Transversal skills interventions are designed to achieve employment and
growth.

The beneficiaries of the skills interventions programmes were generally

positive about their training and felt that their employability had improved.
These interventions contributed to employment opportunities for youth.
2

The lack of standardized reporting was identified as a key constraint in


reporting on and tracking the effectiveness of the transversal skills
interventions. Part of the problem is that programmes used different
definitions when reporting on their outcomes. For example, jobs created could
be interpreted as a job created whilst it could also be interpreted as an

unemployed person placed in a temporary work opportunity.


Factors contributing to skills mismatch include ineffective use of readily
available data to inform decision-making, the lack of a Provincial economic
development strategy, lack of clear distinction between internal departmental
skills interventions from those that seek to address scarce skills requirements
of economic sectors, the lack of a standardized reporting framework and the
lack of quantifiable information on sector needs. The lack of transversal
planning

in

the

development

and

execution

of

skills

development

interventions was also considered a key constraint.


The skills development interventions have unintended consequences such as
facilitating entrepreneurial and enterprise development.

Executive Summary
SAMFA Research Solutions was appointed by the Department of Economic
Development and Tourism (DEDT) to conduct an Evaluation of Transversal Skills
Interventions in Supporting Growth and Jobs. The evaluation was to look at the
extent to which the skills interventions of the Western Cape Provincial Government
during the period 2010 2012 matched the skills requirements of the Western Cape
economy. The evaluation was also to determine the effectiveness of these skills
interventions in supporting Provincial Strategic Objective (PSO) 1.
The primary objective was to evaluate the extent of mismatch between skills
required by key economic sectors of the Western Cape economy and skills supplied
via the Western Cape Government skills development interventions (SDIs), and to
identify areas for improvement. Based on the findings of the evaluation,
recommendations were made to improve the alignment between skills required and
skills supplied.
An Integrated Qualifications Framework was developed by the research team as an
innovative tool to gauge the gap between the supply and demand for scarce skills in
the economy.
The development of the framework involved the following:
1. Determining Scarce Skill - scarce skills was determined by looking at the current
and projected skills requirements of specific sectors as reflected in the Sector Skills
Plans (SSPs) of the Sector Education and Training Authorities (SETAs) for the key
economic sectors.
2. Organising Scarce skills - scarce skills were organized using the Organising
Framework for Occupations (OFO - 2013) of the Department of Higher Education
and Training.
The OFO organises scarce skills into 8 occupational groups linked to specific
National Qualification Framework (NQF) levels.
The occupational groups are:
Group1: Managers
Group2: Professionals
Group3: Technicians and Trades Workers
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Group4: Clerical and Administrative Workers


Group5: Services and Sales Workers
Group 6: Skilled Agricultural, Forestry, Fishery, Craft & Related Trades Workers
Group 7: Plant and Machine Operators and Assemblers
Group 8: Elementary Workers
3. Measuring Educational Levels - South African matrices that are used to measure
educational attainment and skills levels such as the Department of Basic Education
categorization of school grade and the National Qualifications Framework (NQF)
were aligned with the International Standard Classification of Education (ISCED 97
Groups) of the United Nations Education, Social and Cultural Organisation (UNESCO)
and the skills levels of the International Standard Classifications of Occupations
(ISCO 08) developed by the International Labour Organisation (ILO).
On the demand side, the framework enables the plotting of scarce skills required by
economic sector according to different occupational categories as per the
Organising Framework for Occupations.
On the supply side, the tool enables the comparison of skills development
interventions along different education tracts whether learnership, educational
band, National Skills Development Strategy level or National Qualifications
Framework (NQF) level.
A skills match or mismatch was determined by positioning the qualification level of
a skills development intervention with the occupational level of specific scarce skills
required by a given economic sector.
Alignment between the skills intervention qualification level and the occupational
level of the scarce skill required by the economic sector is considered a match.
Misalignment equals mismatch.
The information utilised to evaluate the skills development interventions was
collected though the following collection methods:
1.
2.
3.
4.
5.

Literature Review
Key informant interviews (strategic and operational managers)
Beneficiary Survey
Database / Catalogue
Programme Sheets

The main findings of the evaluation are:


5

1. The

Western

Cape

Government supported

eleven

skills development

interventions between 2010 and 2014 that sought to address scarce skills in
the economy.
2. The largest segment of the unemployed (66%) does not have a Grade 12
education.
3. The transversal skills interventions are designed to achieve employment and
growth.
4. The beneficiaries of the skills interventions programmes were generally
positive about their training and felt that their employability had improved.
5. Skills interventions for the most part were funded by the public sector,
whether the provincial government or the Jobs Fund. No evidence was found
of the private sector providing any form of contribution to the skills
development interventions apart from hosting beneficiaries.
6. These interventions partially helped in resolving identified challenges with
regard to mismatch in supply and demand in that they only addressed a
particular subset of need. For example, many of the programmes enabled
participants to enter the job market at an entry level which prepared them
with a preliminary set of skills. The onus was then on them to find their way
to the higher levels of education.
7. These interventions contributed to employment opportunities for youth in two
ways. Firstly, all the interventions had an on-the-job work experience
components of varying durations. Many of the beneficiaries managed to get
jobs after their training as evidenced in the beneficiary survey where more
than fifty percent of beneficiaries were employed at the time of the interview.
8. With regard to funding models used, all programmes used departmental
funds except for the Artisan Development Programme and the Work and Skills
Programme

that

leveraged

R10.8

million

rand

from

the

JOBs

Fund

administered by the Development Bank of Southern Africa (DBSA) and cofunding for the Artisan Development Programme from Wholesale and Retail
Trade Sector Education and Training Authority (SETA) and the Manufacturing,
Engineering and Related Services Sector Education and Training Authority
(SETA).
9. The interventions managed to reach the target groups that it sought to
address.
10.The lack of standardized reporting was identified as a key constraint in
reporting on and tracking the effectiveness of the transversal skills
interventions. Part of the problem is that programmes used different
6

definitions when reporting on their outcomes. For example, jobs created could
be interpreted as a job created whilst it could also be interpreted as an
unemployed person placed in a temporary work opportunity.
11.Factors contributing to skills mismatch include ineffective use of readily
available data to inform decision-making, the lack of a Provincial economic
development strategy, lack of clear distinction between internal departmental
skills interventions from those that seek to address scarce skills requirements
of economic sectors, the lack of a standardized reporting framework and the
lack of quantifiable information on sector needs.
12.Factors leading to successful outcomes of skills programmes include
governments interaction with the economic sectors and partnership with the
private sector and NGOs.
13.Challenges and constraints inhibiting achievements were found to include
budgetary constraints, frictions and challenges within industry, the generally
poor caliber of students produced by the secondary schooling system,
shortage of people with mathematics and science qualifications, inadequate
research and planning by government departments, lack of coordination
amongst government departments.
14.The skills development interventions have unintended consequences such as
facilitating entrepreneurial and enterprise development.

Based on the main findings of the evaluation of the skills development interventions
the following recommendations are made:
1. It

is

recommended

that

skills

development

interventions

target

the

unemployed without a grade 12 education as this constitutes the largest


segment of the unemployed.
2. In addition it is recommended that the order of magnitude of the existing
skills development interventions have to quantum leap in terms of volume of
target group reached to make any significant impact on the unemployment
situation.
3. It is recommended that a greater understanding of the scarce skills
requirements of key economic and key growth sectors and subsectors is
needed for the Western Cape economy. Thereafter this need has to be
quantified.

4. It is recommended that reporting be standardized across departments and


that the same definitions are used by all departments. It is recommended
that both the database / catalogue with its associated fields; and the skills
demand and qualification framework developed by the project team be used
for standardization and reporting.
5. With regard to the Provincial Skills Forum (PSF) the following is
recommended:
The PSF establish and coordinates transversal sector skills groups for

each of the growth sectors of the economy.


Each sector group (except Manufacturing) to determine / commission a
calibrated understanding of Western Cape scarce skills need and

quantum of demand.
Each sector group engages the private sector and the NGO.
Each sector group determines what scarce skills at what NQF level and

OFO occupational group it will seek to address.


Each sector group manages its skills development interventions

transversally across different departments.


Targets to be determined in relation to the quantum of demand for

scarce skills at Provincial level.


Each sector group to determine sector best practices and share within

the group and with other groups.


The PSF coordinates a number of state and semi-state role-players in the
skills development arena who are not coordinating their efforts at the
point of entry into the labour market. These role-players are Department
of Labour, Department of Higher Education and Training, Department of
Basic Education, FET Colleges, Provincial Department of Education and
Sector Education and Training Authorities (SETAs). Through this the PSF
will learn what others are doing in the skills development arena and will
make more informed decisions regarding where it should focus and
channel its scarce resources.

LIST OF TABLE

Table 1: Skills Development Intervention Programmes by Department......................4


Table 2: Skills Development Interventions and Economic Sectors 2011-2014..........18
Table 3: Jobs Created, Costs Of Programmes 2011-2014..........................................22
Table 4: Demographic Composition of the Unemployed...........................................23
Table 5: Demand for Agricultural Occupations by Occupational Group 2011-2015. .29
Table 6: Demand for Construction Occupations by Occupational Group 2011-2013 31
Table 7: Demand for Financial Services Occupations by Occupational Group 2011..36
Table 8: Demand for Manufacturing, engineering and Related Services Occupations
by Occupational Group 2014-2018...........................................................................40
Table 9: Overview of Key Statistics Pertaining to the SDIs by Programme 2011 -2014
................................................................................................................................. 46
Table 10: Skills development programmes and their intended target populations...53
Table 11: Gender Distribution of Beneficiaries..........................................................55
Table 12: Highest Educational Level Completed.......................................................55
Table 13: Skills Development Programmes...............................................................55
Table 14: Skills Training Received.............................................................................56
Table 15: Skills Development Programme................................................................58
Table 16: Level of Education Completed...................................................................61
Table 17: Skills Training Received.............................................................................61
Table 18: Skills Training Received.............................................................................63

LIST OF FIGURES
Figure 1: Skills Development Interventions and the Sectors which they Impact......21
Figure 2: Agriculture Scarce Skills.............................................................................28
Figure 3: Supply (SDIs) and Demand of Agriculture Scarce Skills.............................30
Figure 4: Supply (SDIs) and Demand of Construction Scarce Skills..........................32
Figure 5: Finance, Insurance, Real Estate and Business Services Sector Scarce Skills
................................................................................................................................. 33
Figure 6: Supply (SDIs) and Demand of Finance and Business Services Sector Scarce
Skills......................................................................................................................... 37
Figure 7: Manufacturing Sector Scarce Skills............................................................39
Figure 8: Supply (SDIs) and Demand of Manufacturing Sector Scarce Skills.............41
Figure 9: Wholesale and Retail Sector Scarce Skills..................................................43
Figure 10: Supply (SDIs) and Demand of Wholesale and Retail Sector Scarce Skills 44

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INTRODUCTION

This report evaluates the Western Cape Governments (WCGs) initiative to provide
transversal skills training and development as part of a broader strategy to facilitate
economic growth and employment generation. The report analyses the mismatch
between scarce skills required by key economic sectors of the Western Cape
economy and the skills supplied/supported by the skills development interventions
(SDIs) of the economic cluster departments of the Western Cape Government.
2

BACKGROUND TO THE STUDY

SAMFA Research Solutions was appointed by the Department of Economic


Development and Tourism (DEDAT) to conduct an Evaluation of Transversal Skills
Interventions in Supporting Growth and Jobs. The evaluation was to look at the
extent to which skills interventions of the Western Cape Provincial Government
during the period 2010 2012 matched the skills requirements of the Western Cape
economy. The evaluation was also to determine the effectiveness of these skills
interventions in supporting Provincial Strategic Objective (PSO) 1.

2.1 PROBLEM STATEMENT


Unemployment, economic development and skills development are inextricably
linked. Skills demand and supply is determined by many factors of which economic
development is a key factor. Job seekers are seeking work and the economy is
providing some jobs but for the most part the skills of the job seekers are often not
those that employers are seeking.
The above scenario applies to the Western Cape and can be located in a provincial
economic context of jobless growth with the narrow unemployment rate currently
standing at 23.5% having increased by 7% since 2008 (PERO 2013:92). Despite all
economic sectors generally recording positive growth on average between 2000 and
2010, this did not translate into significant numbers of jobs being created.
Recognizing that high unemployment is largely a function of lackluster economic
development and that skills development is a strategic imperative in terms of
quality labour supply, the Western Cape Provincial government formulated a vision
to address economic development and job creation.

In 2011 The Provincial Cabinet set 12 Provincial Strategic Objectives (PSOs) with
PSO 1 Creating an enabling environment for growth and jobs putting jobs
creation and growth at the forefront of the administrations agenda in the Western
Cape.
Skills development would be an important intervention to achieve this objective
and, according to the Provincial Government Budget Office in 2012, an estimated
R442.5 million across 13 government departments was spent on skills and job
training programmes. This amount however includes internal departmental human
resource development and training. There is a need to understand how much was
spent on external human capital development that sought to address skills
demands of the Western Cape economy.
A Provincial Skills Forum (PSF) was set up to coordinate skills interventions. The
PSFs mandate was to ensure a coordinated approach by Western Cape government
departments and entities with regard to the skills development interventions that
sought to reduce the gap between skills supplied and the skills demanded by the
Western Cape economy.
In order for the PSF to execute its mandate the first order of business was to have a
sense of what skills development initiatives funded by the Western Cape Provincial
Government there are and to map their current status quo. One of the key
challenges indicated by the PSF is the absence of a standardized tool that can be
used for needs assessment, intervention planning, implementation, management
and monitoring and evaluation.
The three main purposes of the PSF are:
To provide a mechanism where business, government, institutions
of learning and skills development agencies can collaborate on
skills development and projects, the aim of which will be to ensure
that industry and government are provided with the skills

necessary for growth.


To provide a mechanism through which the medium and long-term
skills needs of the Western Cape economy can be researched and

identified in order better to inform the strategies of institutions of

learning and skills development agencies.


To ensure that each sector identified for support will have a skills
development programme appropriate to that sector but also
taking cognizance of the wider benefits of such training for other
sectors in the provincial economy. One of the constituent tasks of
each sector development unit will be to ensure that the training
needs of the sector are met through appropriate programmes.

The overarching roles of the PSF have been outlined as:


Facilitating the development of a Human Resource Development (HRD)
Framework that will guide the coordination and implementation of skills

development interventions;
Facilitating relationships with relevant stakeholders and role-players to
initiate skills development programmes that will address the skills shortages

identified;
Unlocking funding for skills development;
Coordinating institutional arrangements to decrease duplication of HRD
activities and ensure improved impact of provincial skills development

initiatives;
Piloting novel approaches to skills development, flexible to industry needs.

The operational structure of the Western Cape PSF consists of the Premier's
Council on Skills (PCS), the Technical Working Group (TWG) and various Work Groups
(WGs). The Premier's Council on Skills is a consultative forum, responsible for
coordination at a provincial level, and providing strategic leadership and direction,
and facilitating dialogue with and between all social partners and stakeholders. The
Technical Working Group will translate the skills agenda developed by the Premier's
Council on Skills into strategies and practical interventions. The Work Groups are
responsible for implementing the strategic interventions. The overall coordination
and management of the structure is provided by the PSF Team, which is located
within the Department of Economic Development & Tourism (DEDAT).

The

relationships between the PSF and the different stakeholder groups are represented
in the following graphic.

Figure 1: Operatorational Structure of the PSF

The Forum identified many of the skills areas impacting on the economy that
requires attention:
Information and Knowledge Management skills planning is often
conducted in a vacuum, which impacts the quality of implemented
interventions; therefore the necessity for improved information and data is

critical.
Placement Opportunities for Graduates young graduates often find
themselves in a situation where they cannot find employment due to a lack of
workplace experience. The articulation between linking graduates with
industry will support the graduates to gain the required skills and experience,

to supplement knowledge acquired.


Entrepreneurial Skills Development The economy needs to create more
jobs

and

small

opportunities.

businesses

The

need

need

therefore

to

be

supported

exists

to

explore

to

expand
the

their

challenges

entrepreneurs face and identify ways to strengthen the skillsets within the
arena of entrepreneurs to grow their businesses.

2.2 RATIONALE
The rationale for the evaluation is also informed by the following skills data
challenges;
Most

government

departments

fund

both

internal

human

resource

development and external constituency initiatives. For example, departments


within the economic cluster tend to fund only interventions within that
cluster. These external skills development initiatives may or may not have

any direct relevance to economic growth or sector development.


Provincial skills interventions are not mapped which results in limited
understanding of:
- Which skills programmes are supported by which departments?
- How much is being spent on programmes that target unemployed people?
- The nature of training provided?
- If and how skills programmes match current and future needs of the
economy?

In summary the rationale for the evaluation is driven by the following four drivers:
1. Multiple levels of possible mismatch in skills supplied vs those needed by the
economy

2. Realities where economic growth will come from in terms of key growth
sectors and the nature of skills required in those sectors. Particularly the need
for labour absorptive growth.
3. Current state of co-ordination of transversal skill interventions.
4. The need to address possible information gaps across the Western Cape
Governments skills programmes.

2.3 PURPOSE OF THE STUDY


The purpose of the study is to evaluate the transversal skills interventions and to
assess how the interventions could be strengthened. Towards this end, the
evaluation will seek to address and/or answer the following key evaluation
issues/questions:

Identify the major factors that contribute to skills mismatch


Are the transversal interventions designed to achieve employment and

growth?
What are the sector specific Western Cape government supported skills

interventions from 2010-2012?


What are the target groups response to these interventions?
Are the skills development programmes reaching the right target groups?
What are the transversal skills interventions contribution to the intended

skills development programme outcomes?


Skills development interventions contributions to employment opportunities

for the youth


What are the proposed outcomes of skills development interventions?
Factors contributing to the achievement of skills development interventions
Critical contributors to achieving the outcomes of skills development

interventions
Challenges and risks potentially inhibiting the outcomes of skills development

interventions
Strengthening and making skills development interventions more efficient

and effective
Funding models employed to fund skills development interventions
The role of the private sector and non-governmental sector in skills
development

METHODOLOGY

This section reports on the methodology that was used to execute the evaluation of
the skills development interventions.
The project had the following parameters:
As per the Terms of Reference (ToR) stipulation the project focused on the five core
departments out of the thirteen of the Western Cape Provincial Government
(WCPG). These departments, which are at the centre of the Provincial Economic
Cluster, are:

Department
Department
Department
Department
Department

of
of
of
of
of

Economic Development & Tourism (DEDT)


Transport and Public Works (DTPW)
Human Settlements (DHS)
Environmental Affairs & Development Planning (DEADP)
Agriculture (DoA)

Skills development interventions had to address a skills need of an economic sector


of

the

Western

Cape

economy.

Internal

departmental

skills

development

interventions that were part of departmental human resource development or


capacity building initiatives were not included. Also excluded were departmental
funded skills development interventions that involved sector constituency or
stakeholder skills development. For example, skills development interventions by
the Provincial Department of Education for teachers, or continuous professional
development programmes for health professionals funded by the Provincial
Department of Health were not included. The intervention had to be transversal i.e.
the skills developed by the intervention had to be transferable, or address a need in
more than one economic sector.
During the initial phases of the study it became apparent that the Department of
Human Settlements did not have skills development interventions that matched the
criteria of the project. After initial engagement, the Department of Environmental
Affairs and Development Planning too was found not to have skills development
interventions that fitted the project criteria. This was discussed with the project
manager and the research team was advised to substitute with the Premiers
Advancement of Youth (PAY) project some months into the project. This resulted in

delays and can be used as an example of the lack of basic data on SDIs in the
Province.
The project commenced with a review of existing skills development databases,
relevant literature and project documentation of the economic cluster departments
that was provided via the project manager.
Five key stakeholder / informant interviews were conducted. The key stakeholders
were exclusively senior government officials who were specifically selected by the
Department of Economic Development and Tourism (DEDT) on the basis of their
specialized knowledge of the transversal skills development interventions of the
Western Cape government. In addition to these interviews, eight programme
manager interviews were conducted with the managers who were responsible for
the skills development initiatives (SDI) which formed part of the current evaluation.
These managers provided the bulk of the data requirements for the project.
A list of the interviewees are given below:
1.
2.
3.
4.
5.
6.

Ms. Elizabeth Walters - Co-ordinator: Provincial Skills Forum


Mr Solly Fourie HOD: Department of Economic Development and Tourism
Mr. Anthony Phillips Chief Director: Skills Development and Innovation
Mr. Troy Pascucci Deputy Director: Workforce Optimization
Mr. Ferdie Jacobs Manager EPWP Skills Development
Ms Joanne Johnstone Chief Director: Department of Economic Development

and Tourism
7. Mr Marius Paulse - Director - Structured Agricultural Training, Department of Agriculture
8. Ms. Rashieda Wentzel Director, Department of Agriculture
9. Ms. Fezeke Rayi Senior Manager, Department of Transport and Public Works
10.Ms. Jessica Katz Department of Environmental Affairs and Development
Planning
11.Ms. Rahiema Loghday Director: Department of Economic Development and
Tourism
A database / catalogue template with key fields was developed to capture the data
responses from programme managers. The data was then recaptured into a
standardized

template,

checked

and

then

departments for additions and amendments.

recirculated

to

the

respective

In addition to interviews a telephonic survey of project beneficiaries was conducted


using non-representative purposive sampling that sought to interview twenty
beneficiaries from the SDIs of each department. Ninety eight beneficiaries from the
various programmes were surveyed to ascertain their views on the usefulness of the
training provided and the extent to which it had enabled them to find employment
or be more employable.
The

information

from

the

key-stakeholder

interviews,

programme

manager

interviews and beneficiary survey was triangulated to answer the evaluation


questions.
4

LIMITATIONS

The evaluation had numerous limitations which impacted on the quality of the
results. These are discussed below:
Disparate

data

sources

and

non-standardised

reporting

across

different

departments and programmes impacted resulted in considerable delays and on the


quality of the findings.
During the initial phases of the study it became apparent that the Department of
Human Settlements did not have skills development interventions that matched the
criteria of the project. After initial engagement, the Department of Environmental
Affairs and Development Planning too was found not to have skills development
interventions that fitted the project criteria. This was discussed with the project
manager and the research team was advised to substitute with the Premiers
Advancement of Youth (PAY) project some months into the project. This resulted in
delays and can be used as another example of the lack of basic data on SDIs in the
Province.
As per the ToR, the project initially focused on the period 2010 to 2012. However,
mid-way through the project it became evident that there were gaps in the data for
a meaningful evaluation thereby necessitating a change in the period under review
to 2011-2014. This resulted in an attempt to augment existing data resulting in
more delays.

The data requirements for the evaluation were primarily collected from the
programme managers managing the various SDIs and could therefore not be
externally corroborated as it was (in most cases) not reported on as individual line
items in the Annual Performance Plans and Annual Reports of the departments
concerned.
One of the key limitations of this evaluation was the fact that the evaluation
questions did not provide for interviews with the private sector as employers of the
beneficiaries of the skills development/training interventions with a view to
understanding the appropriateness and quality of training provided.
The project team was not informed of and did not attend any Provincial Skills Forum
meetings to gain insights into how transversal skills are co-ordinated across
departments and sectors to support job creation and growth.
The service provider team was also not informed of project Khulisa commissioned
by the WCG to look at, amongst other things, key growth sectors in the Western
Cape economy, nor was the team informed of the status of this initiative i.e.
research study, policy position or government strategy. Project Khulisa is set to
determine the future focus of SDIs in the province.

4.2 Delimitations

This evaluation was not an impact assessment of each skills development

intervention.
Though the evaluation will be used by the Provincial Skills Forum, this was not
an evaluation of the Provincial Skills Forum.

FINDINGS

Our evaluation begins with the information/data provided by officials of several


departments in a series of interviews. The content of the interviews covered the role
of the PSF and the designated departments and their respective programmes. The
evaluation is based largely on the information provided during these interviews and
the data gathered from our desktop and field research. The findings of the report
are discussed under the following sections:
A description of the SDI programmes by departments selected for this
study their mandate, targeted occupations and sectors, number of
3

beneficiaries and intended outcomes. This section is largely descriptive in


nature providing the context for the subsequent answering of the

evaluation questions.
Answers to the evaluation questions.
Lastly, the role of PSF is examined highlighting its current strengths and
weaknesses. Although an evaluation of the role of the PSF is not explicitly
dealt with in the evaluation questions, it is crucial for the success of the
skills development initiatives in the province and warrants further
investigation.

5.1 Skill Development Intervention Programmes


The following table presents the skills development intervention programs by
department.
Table 1: Skills Development Intervention Programmes by Department

PROGRAMME

DEPARTMENT

Agriculture Internships

Department of Agriculture

Agriculture External
Bursaries and Scholarships

Department of Agriculture

Young Professional Persons


(YPP)

Department of Agriculture

Agricultural Partnership for


Rural Youth Development
Programme

Department of Agriculture

National Youth Service (NYS)

Department of Transport & Public Works

Masakh I Sizwe Professional


Development

Department of Transport & Public Works

DTPW Internship Programme

Department of Transport & Public Works

DTPW Apprenticeship
Programme

Department of Transport & Public Works

Work and Skills Programme

Department of Economic Development and


Tourism

Artisan Development
Programme

Department of Economic Development and


Tourism

Premiers Advancement of
Youth (PAY) Programme

Department of Economic Development and


Tourism (Work readiness), Department of
the Premier, Other provincial departments
(stipends)

DEPARTMENT OF AGRICULTURE
1. INTERNSHIP PROGRAMME
Programme Description: In the Agricultural Internship Programme, matriculants,
students and graduates get an opportunity to spend a designated period of time at
the Provincial Department of Agriculture and its facilities to get work experience and
exposure to the agricultural sector.
Objective: The objective of the Agriculture Internship Programme is to promote
agriculture as a career opportunity and to provide an avenue for entry into
agriculture as a career path.
Rationale: The rationale for the programme is that interns will gain exposure to
career-pathing, further studies and opportunities within the agriculture sector.
Matriculant interns get exposed to career opportunities in agriculture.

Student

interns serve an internship to complement their studies. This is necessary for them
to complete their studies to graduate. Bursary holder student interns serve vacation
internships whereby they are able to experience the implementation of their
academic learning and build up a relationship with the Department. Graduate
Interns are appropriately placed to apply their qualifications and gain meaningful
work experience in line with their qualification.
Target Group: The target groups for this programme were youth, unemployed
matriculants, agricultural students and graduates.

Sector Needs: Agricultural sector needs were identified via the agriculture sector
skills plan, workforce development plans, platforms and mechanisms that have
been put into place where the government and the private sector engages
regarding industry needs. Agricultural needs were also identified via a series of
sector and sub-sector studies.
This programme addresses sector needs from intermediate (NQF 5-6 - agricultural
technicians, crop produce analysts, livestock inspectors, etc.) to high-level skills
(agricultural scientists, farm and production managers, land degradation analysts,
etc. at NQF levels 7-10).
Qualification level of intervention: Internships spanned NQF levels 5-10 and
covered intermediate and high-level skills as defined by the National Skills
Development Strategy.
Skills Content: The primary content of the programme is exposure and work
experience in the agricultural field.
Nature of Training: The nature of the training varied depending on the type of
internship.

Matriculants receive exposure and experience and are rotated

throughout the Department. Student interns receive exposure as determined by the


Higher Education Institution. Graduate interns are appropriately placed in line with
their qualification.
Duration: Varied between a few weeks and 12 months depending on whether the
intern is a student who is on a vacation internship, or a graduate gaining postqualification work experience.
Transversal Application:

Internships provided the participants with agricultural

sector work experience making them more marketable and giving them a broader
understanding of the labour market and work ethics.

2. EXTERNAL BURSARIES AND SCHOLARSHIPS


PROGRAMME
Programme Description: the Agriculture External Bursaries and Scholarship
Programme provides bursaries to underprivileged youth studying agriculture scarce
fields with preference given to youth from identified rural areas. The programme
also provides scholarships to rural high school students and farmworker children
with mathematics and science.
Objective: The objective of the Agriculture External Bursaries and Scholarship
Programme is to promote agriculture as a career opportunity and to provide an
avenue for entry into agriculture as a career path.
Rationale: The rationale for the programme is to encourage and attract youth to
consider a career in the agricultural sector. To equip youth, especially rural youth,
farm worker children and previously disadvantaged youth, with the necessary
financial and other support to allow them to complete further studies in scarce
agricultural fields. Also, to address the imbalance of Employment Equity within the
agricultural sector, with particular reference to scarce skills.
Target Group: For scholarships, the target group is rural high school scholars and
farmworker children with mathematics and science.
For bursaries, the target group is underprivileged youth studying in agriculture
scarce skills fields with preference given to youth from identified rural areas.
Sector Needs: This programme addresses sector needs from intermediate (NQF 56 - agricultural and horticultural produce inspectors, crop produce analysts, etc.) to
high-level skills (extension officers, diagnostic professionals, etc.)
Qualification level of intervention: Scholarships are at NQF level 4 (Matric) and
bursaries address postsecondary, tertiary education from NQF 5-10.
Skills Content: Determined by the field of study.
Nature of Training: The nature of the training is determined by the field of study.
Duration: Duration of studies.
Transversal Application: Scholarships provide rural high school students with
opportunities to meet the criteria for further study at Higher Educational Institutions

for

any

field

of

study.

Bursaries affords previously disadvantaged youth the opportunity of a qualification


in the scarce skills of agriculture and related sectors e.g. civil engineering, food
technology, and agricultural economics.

3. YOUNG PROFESSIONAL PERSONS (YPP) PROGRAMME


Programme Description: The Agriculture Young Professional Persons (YPP)
Programme provides financial support for historically disadvantaged individuals to
acquire Honours, Masters and PHD qualifications in scarce skills and expertise in
agriculture and related sectors such as civil engineering, food technology and
agricultural economics.
Objective: To promote agriculture as a career opportunity and to provide an
avenue for entry into the agriculture as a career path.
Rationale: The rationale for the programme is to give agricultural students of
previously disadvantaged backgrounds the opportunity to be mentored and coached
with their studies while applying their studies practically and building up a
relationship with the Department as they perform their daily tasks and attend
personal development training. YPPs are offered contract or permanent positions at
the end of their programme.
An affirmative action programme to elevate agricultural students of previously
disadvantaged backgrounds to attain an Honours or masters qualification in the
scarce and critical skills with an opportunity of a doctorate.
Target Group: Historically disadvantaged students studying in agriculture scarce
fields at Honours, Masters and PhD levels.
Sector Needs: This programme seeks to address high-level skills requirements
that include, amongst others, farm consultants and advisors, environmental
research scientists, specialist managers, etc.
Qualification level of intervention: Post-graduate (NQF 8-10) i.e. Honours,
Masters and PhD.
8

Skills Content: The primary content of the programme is the content of the
respective Honours, Masters and PhD programmes of the Young Professionals.
Nature of Training: The nature of the training is determined by the field of study
of the Young Professional.
Duration: This depends on the requirement of the respective study programme.
Transversal Application: In addition to agriculture, the skills acquired can be
applied in civil engineering, food technology and agricultural economics.

4. AGRICULTURAL PARTNERSHIP FOR


DEVELOPMENT (APFRYD) PROGRAMME
Programme

Description:

the

Agricultural

Development

Programme

provides

financial

RURAL

Partnership
assistance

to

for
rural

YOUTH

Rural
youth

Youth
and

farmworker children to complete matric with mathematics and science and for
further studies in agriculture. It also provides internships for unemployed
matriculants without workplace experience from rural areas.
Objective:

The

objective

of

the

Agricultural

Partnership

for

Rural

Youth

Development Programme is to promote agriculture as a career opportunity and to


provide an avenue for entry into the agriculture as a career path.
Rationale: The rationale for the programme is that financially supporting the
education of rural youth and farmworker children will increase their skills base,
increase career opportunities and their employability.
Target Group: Unemployed matriculants with no work experience from rural areas,
rural youth in general and farmworker children with mathematics and science in
Grades 8 - 12.
Sector Needs: This programme seeks to prepare students to meet/satisfy the
entry level requirements, (such as mathematics and science) of the first stage of
tertiary education. It also seeks to provide workplace experience which will serve as
stepping stone and improve employability of matriculants.
9

Qualification level of intervention: NQF 1 - 5.


Skills Content: Mathematics and science at Grade 8-12 level and agriculture subsector content during internship.
Nature of Training: High school education and workplace training and experience.
Duration: Grade 8-12 and duration of learnership and internship.
Transversal Application: Meeting mathematics and science entrance criteria for
tertiary studies has transversal application beyond agriculture.

For example,

transport, finance, engineering, etc. Learnerships and internships provide the


participants with agricultural sector work experience making them more marketable
and giving them a broader understanding of the labour market and work ethics.

DEPARTMENT OF TRANSPORT AND PUBLIC WORKS


1. NATIONAL YOUTH SERVICE (NYS) PROGRAMME
Programme

Description:

The

National

Youth

Service

programme

of

the

Department of Transport and Public Works provides unemployed youth with training
and on-site work experience primarily in the construction sector.
Objective: To improve the employability of youth through a combination of training
and workplace activities in the built environment.
Rationale: The rationale is to recruit unemployed youth into a training programme
that enables them to access meaningful work opportunities within the construction
and manufacturing industries.
Target Group: Unemployed youth between the ages of 18 and 35 years with
minimum Grade 8 education.
Sector Needs: The programme addresses scarce skills in the construction and
manufacturing sectors.

10

Sector needs were identified by consulting the scarce and critical skills list of the
Sector Skills Development Plans of the Construction Sector Education and Training
Authority (SETA), the Manufacturing, Engineering and Related Services SETA,
consulting the Public Works Building programme, municipalities and Workplace
Skills Development plans.
The programme seeks to address the following sector trade needs; qualified
plumbers, carpenters, electricians, bricklayers, welders, etc.
Qualification level of intervention: NQF levels 3 - 5.
Skills Content: The primary skills content of the programme is plumbing,
carpentry, electrical, bricklaying, welding and road works.
In addition to this, there are life skills training to prepare the learners for the posttraining phase and job-readiness.
Nature of Training: Learners are placed with accredited training providers for
theory for a period of 3 months and then placed with building contractors on a
building site for 6 months for on-site work experience.
Duration: 9 months
Transversal Application: The skills are used across the construction and
manufacturing sectors, including the propulsive and employment supporting
sub-sectors;

Oil, Gas and Marine Complex

Green Economy

Agri-, Aqua- and food processing


Metals and engineering

11

2. MASAKH
PROGRAMME

SIZWE

PROFESSIONAL

DEVELOPMENT

Programme Description: The Masakh I Sizwe programme provides financially


disadvantaged individuals with financial and structured professional development
support to complete tertiary level qualifications in the engineering, planning,
quantity surveying and transport economics fields.
Objective: The programme has the following short, medium and long-term
objectives.

SHORT TERM

Empower

youth

that

are

financially

disadvantaged by providing a bursary to give


them an opportunity to gain access to tertiary
education

to

enable

them

to

obtain

qualification though full-time study in a higher


education institution (HEI) in the Western
Cape.
MEDIUM TERM

a Enable cost-sharing in respect of the bursary programme through a bursary


collaboration venture with private sector.
b Provide bursars with support that goes beyond financial support to unlock and
maximise the potential of bursars to enable them to complete.
LONG TERM

(a) Provide a structured Professional Development Training Programme to enable


employees to attain and/or retain professional registration.

12

(b) Create either formal or informal partnership with private sector, NGOs and other
spheres of governing through a bursary collaboration venture.
(c) Pull together resources to maximise and ensure sustainability and continuous
development.
(d) Reduce unemployment rate of the youth by providing in-service training to
bursars while they are studying and employment opportunities to graduates.
(e) Address skills shortages and reduce vacancy rates by creating a feeding pipeline
for filling vacant posts by creating a pool of continuous flowing young talented
registered professionals through professional development training programmes.
(f)

Enable succession planning by creating a conducive environment for sharing


and transfer of experience, expertise, competencies and/or skills between young
professionals and registered professionals approaching middle age or retirement
through mentoring and secondment of employees.

Rationale: The rationale is to materially support the professional development of


historically disadvantaged individuals in engineering, planning, quantity surveying
and transport economics. The reasoning being that this would address the need for
these critical skills in both government and in industry.
Target

Group:

Historically

disadvantaged

individuals

studying

engineering,

planning, quantity surveying and transport economics at Higher Education


Institutions.
Sector Needs: The professional and technical skills are used across the
manufacturing, agriculture and construction sectors including the propulsive and
employment supporting sub-sectors;

Oil, Gas and Marine Complex

Green Economy

Agri-, Aqua- and food processing


13


The

Metals and engineering

programme

seeks

to

address

the

following

sector

professional

and

management skills needs; engineers; safety, health, Environment and Quallity


(SHE&Q) practitioners, surveyors, managers, etc.
Qualification level of intervention: High-level skills, NQF levels 7 - 10.
Skills Content: The primary skills content of the programme is engineering,
construction and property studies, town and regional planning, quantity surveying
and transport economics. The programme also has a support programme that
includes life skills, and support with regards to securing employment and/or
entrepreneur opportunities.
Nature of Training:

In addition to the individuals receiving formal instruction in

their respective degree programmes at the different higher education institutions,


they also received support which take the form of a mentoring programme, social
adjustment mentoring, academic support, leadership skills, employability skills,
outreach programme, health and wellness, securing of in-service training placement
for students and securing of employment placement for graduates.

Duration: Duration varied per higher education institution and was determined
by the respective degree programme and associated professional development
requirements. Also, the programme provides support to the bursar contingent upon
satisfactory performance which will be reviewed on an annual basis for the duration
of the qualification.
Transversal Application:

The skills are used across the manufacturing,

construction and agricultural sectors including the propulsive and employment


supporting sectors.

3. DEPARTMENT OF TRANSPORT AND PUBLIC WORKS


INTERNSHIP PROGRAMME

14

Programme Description: The Internship programme of the Department of


Transport and Public Works provides unemployed youth with a National Certificate
Vocational (NCV) Level 4 with practical experience.
Objective: To improve the employability of the learner through practical work place
experience.
Rationale: The rationale is that the internship will provide a stepping stone for a
learner that will enables him / her to access both meaningful work opportunities and
opportunities for further qualification.
Target Group: Unemployed youth with NCV 4 (NQF 4) qualification.
Sector Needs: The programme addresses intermediate level scarce skills in the
construction and manufacturing sectors.
The programme seeks to address the following sector trade needs; qualified
plumbers, carpenters, electricians, bricklayers, welders, etc.
Qualification level of intervention: NQF level 4
Skills Content: The primary skills content of the programme is plumbing,
carpentry, electrical, bricklaying, welding and road works.
Nature of Training: Learners are placed on a building site.
Duration: 6 months
Transversal Application:

The skills are used across the construction and

manufacturing sectors.

4. DEPARTMENT OF TRANSPORT
APPRENTICESHIP PROGRAMME

AND

PUBLIC

WORKS

Programme Description: The Apprenticeship programme of the Department of


Transport and Public Works provides unemployed youth with minimum Grade 10
with on-going learning of occupational skills and on-the-job training.
15

Objective: To improve the employability of the learner through occupational


learning and practical work place experience.
Rationale: The rationale is that the apprenticeship will provide a stepping stone for
a learner that will enables him / her to access both meaningful work opportunities
and opportunities for further qualification.
Target Group: Unemployed youth with minimum Grade 10 qualification.
Sector Needs: The programme addresses entry level scarce skills in the
construction sector.
The programme seeks to address the following construction sector skills needs; air
conditioning and refrigeration, carpentry, electrical wiring, masonry and plastering,
plumbing, painting, tiling, plant operator, floor covering, welding and road works.
Qualification level of intervention: NQF level 2-4
Skills Content: The primary skills content of the programme is air conditioning and
refrigeration, carpentry, electrical wiring, masonry and plastering, plumbing,
painting, tiling, plant operator, floor covering, welding and road works.
Nature of Training: Combination of class-room learning and practical construction
project related experience.
Duration: 1-3 years
Transversal Application: The skills are used across the construction and
manufacturing sectors.

DEPARTMENT OF ECONOMIC DEVELOPMENT AND TOURISM


1. WORK AND SKILLS PROGRAMME
Programme Description: The Work and Skill Programme of the Department of
Economic Development and Tourism provides a short skills course and practical onthe-job training to unemployed matriculants.

16

Objective: To improve the employability of participants through formal life skills


and work readiness training as well as incentivized work place experience in host
companies.
Rationale: The programme is specifically designed to support PSO1 (Job creation
and economic growth) which is the strategic imperative of the Department of
Economic Development and Tourism. The rationale is that in the medium to long
term, trainees will be better skilled and equipped, thus increasing employability, to
find and sustain employment. This is done by placing learners in companies for a
period of six months for them to gain workplace experience.
Target Group: Unemployed South African citizens residing in the Western Cape
between the ages of 18 and 35.
Sector Needs: Sectors showing growth and high absorption of labour are
prioritised. In the 2013/14 roll out of the programme the Manufacturing, Film, BPO,
Tourism & Hospitality, Wholesale & Retail sectors participated in the programme.
Sector needs are addressed through sector / occupationally directed training that is
given to learners to improve their employability, introduce them to the world of
work, potential networking opportunities and career pathways.
Sector needs are identified through host companies that participate in the
programme as well as dedicated Skills Development Facilitators.
Qualification level of intervention: NQF level 5
Skills Content: The primary content of the programme is life skills and work
readiness. This

covers the following areas: team building, employability skills,

stress management, conflict in the workplace, diversity, technology in the


workplace, conflict management, etiquette, ethics, code of conduct, professional
interview skills and presentations, job searching, Sector Education Training
Authorities
government

(SETAs),

career

supported/funded

pathways,

assistance

programmes,

with

apprenticeships

finding
and

bursaries,
internships,

entrepreneurial options, alternative programmes and contact details/practical,

17

explanation of how to enroll, accessing, initiating and activating information and


opportunities, CV writing, debt, budgets, and personal finance, communications,
time and self-management.
In addition to this, there was on the job training.
Nature of Training:

Learners undergo a 4-day life skills and work readiness

course. Thereafter, learners are placed at various host companies for a six month
period where they will receive on the job training from their peers and assigned
mentors. A portion of the learners placed in the host companies undergo further
technical training at relevant accredited training institutions and is partially
subsidised by the Department.
Duration: 6 months
Transversal Application: The life skills, work readiness and employability skills
are used across all sectors. Skills and learnings acquired on the job and during
placement can be used across all sectors.

2. ARTISAN DEVELOPMENT PROGRAMME


Programme

Description:

The

Artisan

Development

Programme

of

the

Department of Economic Development and Tourism provides class-room learning


and practical on-the-job training to Further Education and Training (FET)
graduates.
Objective: To increase workplace experiential learning opportunities for artisan
learners and address the mismatch between supply and demand for artisans.
Rationale: The rationale is that interns will gain access to the National Trade Test
and if successful will qualify in their respective trades.
Target Group: The target group for this programme is unemployed Further
Education and Training (FET) graduates.

18

Sector Needs: All sectors require artisans.

The programme addresses the

demand for artisans in all sectors. This need was identified through the decline of
qualified artisans and the sector skills development plans of different Sector
Education and Training Authorities (SETAs).
Sector skills needs addressed are; technicians, riggers, specialist welders, fitter
and turners, etc.
Qualification level of intervention: NQF level 5 and 6
Skills Content: The primary content of the programme is all the Organizing
Framework for Occupations (OFO) trades identified by the Department of Labour.
Nature of Training: The training encompassed competency based modular
training as per trade discipline with work placement.
Duration: 18 months
Transversal Application: The artisan skills are needed by different sectors of
the economy.

DEPARTMENT OF THE PREMIER


1. PREMIERS ADVANCEMENT OF YOUTH (PAY) PROGRAMME
Programme Description: The Premier's Advancement of Youth (PAY) Programme
provides unemployed matriculants with basic life skills and work readiness training
coupled with a 12 month internship in a Western Cape Government department.
Objective: The objective of the PAY programme is to provide matriculants with life
skills and work experience.
Rationale: The rationale of the programme is that by providing youth with life skills
and work readiness skills, coupled with entry-level workplace experience it will
improve employability and the ability to make better career choices.
Its actually preparing them to make better choices about themselves so while
its exposing them to the world of work, the intention is for them to get a sense
19

of what they need to do in order to go to work. If they feel the experience is


enough to enable them to get an administrative job somewhere, thats fine. But
finally we want the child to go and study further.

Thats what we

want.(Interview with programme manager)


Target Group: Recent matriculants who are between the ages of 18 and 24.
Sector Needs: Different sectors expressed the need for entry-level staff to be
work-ready. This was identified through direct feedback from industry and through
government-private sector engagement platforms.
Qualification level of intervention: NQF level 5
Skills Content: The primary content of the programme is life skills and work
readiness skills. These skills developed in government are transferable to the
private sector.
Nature of Training: Interns are provided with a few days of training and are then
placed in a government department and assigned a mentor / supervisor.
Duration: 12 months
Transversal Application: The work readiness skills and the general employment
experience the interns develop are transferable to any other sector.

5.2 Evaluation of Transversal Skills Interventions in


Supporting Growth and Jobs
The Western Cape Government (WCG) skills development interventions were
implemented in different economic sectors during the 3-year period from 20112014. The table below arranges the programmes in relation to the economic sectors
which they impact.
Table 2: Skills Development Interventions and Economic Sectors 20112014
PROGRAMME
1. Agricultural Internships

SECTOR
Agriculture
20

2. Agriculture External Bursaries


and Scholarships
3. Agriculture Young Professional
Persons (YPP)
4. Agricultural Partnership for
Rural Youth Development
5. National Youth Service (NYS)
6. Masakh ISizwe
7. Public Works Internship
8. Public Works Apprenticeship
9. Work and Skills

10. Artisan Development


11. Premiers Advancement of
Youth (PAY)

Agriculture
Agriculture
Agriculture
Construction and Manufacturing
Construction, Transport, Manufacturing,
Agriculture
Construction and Manufacturing
Construction
According to the programme staff
members the following sectors
participated: Manufacturing, Film,
Business Process Outsourcing (BPO),
Tourism and Hospitality, Wholesale and
Retail.
Artisans are required in all sectors.
Government Services
All sectors identified the need for entrylevel staff to be work-ready.

In order to ascertain whether the SDIs were successful in supporting


employment and growth in the economy, we need to know where these jobs
were created i.e. were they created in the growing, propulsive and
employment supporting sectors of the economy and were the scarce skills
required by the economy developed.
To answer these questions, we used the PERO reports economic growth
forecasts from 2014 to 2019 in the Western Cape, and compared it to the
sectors targeted by the SDI. The PERO report estimates an expected average
growth rate of 3.0 percent per year, peaking at 3.3 per cent in 2019 (PERO
2014: 33). The sectors that are likely to grow are the same ones that
exhibited higher growth rates in the 2000 2013 period with Construction
taking the lead at 4.1%. The tertiary sector is likely to be the biggest driver
of

this

growth.

Within

the

tertiary

sector,

Transport;

Storage

and

Communication exhibits the highest expected growth rate of 3.6% followed


by Financial Intermediation; Insurance, Real Estate and Business Services
21

Sector which is expected to grow at 3.5% per annum. Wholesale and Retail
Trade growth is forecast at 2.8% with Manufacturing growing at 2.4%. When
we match the SDIs and the skills that they support, the following points can
be made in this regard. Generally, it seems that the Departments are
supporting skills development in the high growth sectors, with the exception
of the Department of Agriculture. However, even though agriculture is
considered to be a low growth sector, its importance to the Western Cape
economy is significant enough for it to be considered a priority sector. The
PERO (2014:33) report makes several important remarks about the
Agriculture, Forestry and Fishing sector by stating that (i) Agriculture is
underpinned by a wide diversity of products (ii) the Western Cape has a
comparative advantage in exporting agricultural products compared to the
rest of South Africa and export demand is likely to grow to non-traditional
markets (iii) Agriculture has strong forward and backward linkages to both
the secondary and tertiary sectors of the economy i.e. through the food
and beverage value chain and (iv) agriculture involves inclusive growth and
employment creation since it is primarily located in rural areas and forms an
important economic backbone in many of the Western Capes district
municipalities.
The diagram below depicts the high growth sectors and the propulsive
sectors (i.e. those sectors identified by the Western Cape government as
driving growth and employment creation) with agriculture as a priority
sector. The lines in the diagram show the links between the skills being
developed in the various programmes. It is clear that there is strong
alignment with growth sectors which are represented in the main blocks
while the propulsive sectors are either embedded or to the right of the main
blocks. The arrowheads show the number of programmes addressing a skills
need in the particular sector. This suggests that the SDI interventions are
supporting economic growth and employment in those sectors.

22

Figure 2: Skills Development Interventions and the Sectors which they Impact

23

Although these results sound impressive it is important to note that only


1 078 jobs were reported to be created during the period 2011-2014. (Here it is
important to note that not all departments use jobs created as an indicator nor
is jobs created always a useful indicator when dealing with skills interventions.
Employability seems to be more useful as an indicator in this regard).

Table 3

illustrates that SDIs as a collective cost approximately R114.6 million for


the period under review. This translates into an average cost per job of
R106 291 over the three year period.

The cost per job is merely

calculated as the total budget allocated to the various SDIs divided by the
number of jobs created by them. It is important to note that this is a
ballpark figure which should be interpreted with caution as there is limited
information available on the cost drivers underlying these figures nor is
there accurate information available on jobs created.
Table 3: JOBS CREATED, COSTS OF PROGRAMMES 2011-2014
PROGRAMME
W&S
ADP
NYS
Masakh Isizwe
Internship
Apprenticeship
Agri Internship
Agri
External
Bursaries
Agri YPP
Agri Partnership
PAY

TOTAL
(R)
21 700 000
16 866 000
3 0991 000
24 000 000
900 000
3 800 000
1 890 000
2667 000

JOBS CREATED

4 068 000
3 700 000
4 000 000
114 582 000

809
228
13
15

1078

Data Source: Catalogue and programme sheets filled in by departmental staff

The analysis of data further reveals that the mass of the unemployed can be
matched to NQF levels 1- 3, that is, they have less than a grade 12 qualification.
See Table 4 below.

Table 4: Demographic Composition of the Unemployed


Table 6 Western Cape Demographic composition of unemployment,
2008 and 2013
24

2008 Q1
Number
Share
(000s)
(Per cent)
Total Unemployment
By Race

393

African
Coloured
White
By Gender

161
211
18

41.0
53.8
4.5

Male
Female
By Age

187
206

15 - 24 year olds
25 - 34 year olds
35 - 44 year olds
45 - 54 year olds
55 - 65 year olds
By Education
No education
Grades 0 7
Grades 8 11
Grade 12
Diploma/Certificate
Degree

2013 Q1
Number
Share
(000s)
(Per cent)

100.0

552

Change
Number
Rate
(000s)
(Per cent)

100.0

159

7.0 p.a.*

245
281

44.3
50.9
4.6

84
69
8

8.7 p.a. *
5.8 p.a.
7.4 p.a.

47.6
52.4

293
259

53.0
47.0

105
54

9.3 p.a. *
4.7 p.a.

145
153
58
30
7

36.9
39.0
14.7
7.6
1.8

171
206
108
51
17

31.0
37.3
19.5
9.2
3.1

26
52
50
21
10

3.4 p.a.
6.0 p.a.
13.3 p.a. *
11.1 p.a. *
18.5 p.a.

7
62
198
103
16
3

1.7
15.7
50.4
26.3
4.2
0.9

1
58
302
162
12
13

0.2
10.6
54.8
29.3
2.2
2.3

-6
-3
104
58
-4
9

-33.0 p.a. *
-1.1 p.a.
8.8 p.a. *
9.4 p.a. *
-6.1 p.a.
30.0 p.a.

25

Source: Pero 2013:118)

Even though it is difficult to break down the number of beneficiaries trained


according to NQF level because we dont have detailed figures from departments
indicating exactly what percentage of candidates were trained at the different
NQF levels for all departments and programmes, a rudimentary analysis of
available data reveals that over the last three years, roughly 20% of the
beneficiaries were in the occupational categories corresponding to NQF levels 14. Yet this is where the provinces unemployed numbers are the highest. It is
clear from Table 4 that 361 000 or 65.6 % (approximately) two-thirds of the
552 000 unemployed persons in the Western Cape in 2013 did not have Grade
12 education. Yet only two (NYS and DTPW Internship) out of the 11 skills
development interventions seek to address this need, the biggest segment of the
unemployed.

This would suggest that most of the SDIs do not target those

segments of the unemployed where the numbers are greatest.

This lack of

alignment is a major contributing factor to the mismatch of skills for the vast
numbers of unemployed.
The data also reveals that roughly 68.3% of the unemployed or 377 000 are
considered youth between the ages of 15 and 35 (according to the official South
African government definition this segment is considered Youth.)
25

It is therefore imperative to ascertain the extent to which the programmes have


targeted youth. The descriptions of the programmes in section 5.1 suggests that
there is alignment with the SDIs of the various departments as virtually all 11
programmes target youth as their main beneficiaries.
A scuccessful skills development intervention should ideally stand on two pillars.
One is to address unemployment as a major economic priority, the other is to
have a handle on the recurring problems of scarce skills as an economy develops
and diversifies. This study encountered the challenge of ascertaining the extent
to which the SDIs were addressing the needs of a complex industrial economy
with respect to skills formation. Such a challenge required the development of a
tool that would map the various sectors need for skilled occupations and the
requisite qualifications obtainable through the education system.
A skills match or mismatch was determined by using the tool to position the
qualification level of a skills development intervention with the occupational level
of specific scarce skills required by a given economic sector. Alignment between
the skills intervention qualification level and the occupational level of the scarce
skill required by the economic sector is considered a match. Misalignment equals
mismatch. This tool, referred to as the Integrated Qualifications Framework (IQF),
can also be used by the Provincial Skills Forum as a centralized reporting
template for standardization.
On the demand side, the tool enables the plotting of scarce skills required by
economic sector according to different occupational categories. On the supply
side, the tool enables the comparison of skills development interventions along
different education tracts whether learnership, educational band, National Skills
Development Strategy level or National Qualifications Framework (NQF) level.
The tool is an alignment and amalgamation of all the matrices that are used to
measure education, skills and occupational development in South Africa. It
includes the Department of Basic Education categorization of school grades, the
National Qualifications Framework (NQF) and the Organising Framework for
Occupations (OFO). This is then aligned with the ISCO 08 International Standard
Classifications

of

Occupations

developed

by

the

International

Labour

Organisation (ILO) and the International Standard Classification of Education


(ISCED 97 Groups) of the United Nations Education, Social and Cultural
Organisation (UNESCO).
1. Managers
26

2. Professionals
3. Technicians and Associate Professionals
4. Clerical Support Workers
5. Service and Sales Workers
6. Skilled Agricultural, Forestry, Fishery, Craft & Related Trades Workers
7. Plant and Machine Operators and Assemblers
8 Elementary Occupations
The above occupational categories correspond with set National Qualification
Framework (NQF) levels.
On the supply side of the Integrated Qualifications Framework the skills
development interventions are also plotted in terms of NQF levels

27

28

A description of the extent to which the skills development interventions address


the scarce skills needs of the key economic sectors of the Western Cape
economy where the SDI impact is now discussed. It starts by plotting the scarce
skills on the demand site of the integrated qualifications framework. This is then
compared with the supply of skills by the respective WCG departments.
The sectors that are evaluated are given below:
1.
2.
3.

Agriculture, forestry and fishing


Construction
Financial intermediation, insurance, real estate and business

services
4.
Manufacturing
5.
Transport, storage and communications
6.
Wholesale and retail trade, catering and accommodation

AGRICULTURE

29

Figure 3: Agriculture Scarce Skills

30

Table 5: Demand for Agricultural Occupations by Occupational Group


2011-2015
Occupational Group
1. Managers

2011
9 609

2012
9 860
2 964

2013
10
170
3 072

2014
10
642
3 226

2015
1113
3
3386

2. Professionals

2 873

3. Technicians and Trades


Workers
4. Clerical Support
Workers
5. Clerical and
administrative workers
6. Sales Workers
7. Plant and Machine
Operators and
Assemblers
8. Elementary
Occupations
Total

6 559

6 736

6 951

7 276

7615

1 410

1 448

1 494

1 564

1637

7 553

103
2 183

107
2 239

112
2 309

118
2 415

125
2 526

565
11
672

1 791

1 838

1 895

1 982

2 072

9 578

28
494

131
440

24
25
26
27
528
192
003
223
SCARCE SKILLS LIST: 2011-2016 (Baseline and Projections)

Total
51
414
15
521
35
137

When one compares the demand for agriculture scarce skills across occupational
categories it is clear that the greatest demand is in occupational category Group
1 and 3 i.e. Managers and Technicians and Trades Workers.
The External Bursary Programme, Young Professional Programme, Agricultural
Internship Programme and Agricultural Partnership for Rural Development
programmes by the Department of Agriculture covers the entire spectrum of
Agriculture scarce skills from entry-level to high-level skills.
During the period 2011-2014 a reported 33 jobs were created although an
estimated 369 candidates were beneficiaries.

When compared to the skills

demand at a national level for these occupations, only a fraction of the national
demand for these occupations is being met. There is currently no data available
for the Western Cape.
In the following diagram the WCG skills development interventions are plotted
against the scarce skills requirements in the Agricultural sector.

31

Figure 4: Supply (SDIs) and Demand of Agriculture Scarce Skills

32

: Su

CONSTRUCTION
33

When

one

compares

the

demand

for

construction

scarce

skills

across

occupational categories it is clear that the greatest demand is in occupational


category Group 6 i.e. trades workers.
Table 6: Demand for Construction Occupations by Occupational Group
2011-20131
Occupational Major Group

2011

2012

% of
Total
9%
8%
10%

2013

% of
Total
10%
8%
10%

1. Managers
8904
9602
3643
2. Professionals
7826
8546
2984
3. Technicians and Trades
9851
9767
3755
Workers
4. Clerical Support
4726
4742
5%
1440
4%
Workers
5. Service and Sales
550
639
1%
232
1%
Workers
6. Trades Workers
22042
22482
23%
7151
19%
7. Plant and Machine
10640
12600
11%
7896
21%
Operators and
Assemblers
8. Elementary
29713
29372
32%
10554
28%
Occupations
Total
94252
97750
100%
37655
100%
Source - Construction Education and Training Authority (CETA) Sector Skills Plan
Update: 2013/2014
The NYS, Masakh I Sizwe and the Department of Transport and Public Works
Internship and Apprenticeship programmes cover the entire spectrum of
construction scarce skills from entry-level to high-level skills.
During the period 2011-2014 a reported 228 jobs were created although an
estimated 1 259 candidates were beneficiaries.

When compared to the skills

demand at a national level for these occupations, only a fraction of the national
demand for these occupations are being met.
The following diagram maps the demand for and supply of skills from the SDI
across the spectrum of construction sector scarce skills.

1 Latest data available


34

Figure 5: Supply (SDIs) and Demand of Construction Scarce Skills

35

36

Figure 6: Finance, Insurance, Real Estate and Business Services Sector


Scarce Skills

37

In addition to the scarce skills identified by the Financial and Accounting Services
Sector, the following skills deficit for the Financial Services industry in the
Western Cape was identified:
1. Holistic Skills: The Financial Services industry requires individuals to have
a combination of a good education and technical skills foundation coupled
with process and innovation skills.
2. Financial Services experience and Subsector Knowledge: Financial services
experience coupled with sub-sector experience such as retail banking,
investment banking, insurance, etc., are essential requirements for the
industry.
3. Information Technology Skills: The following IT skills are vital for the
Financial Services industry.
Analyst Developers
COBOL Developers
Information Architects
JAVA Developers
.NET Developers
IT Project Managers
SAP Developers
Software Developers
Systems Architects
Systems Analysts
Systems Developers
4. Specialist Quantitative, Mathematical and Investment Skills. The critical
skills are:
Credit Risk Specialists
Equity Analysts
Fund Managers
Investment Analysts
Investment Bankers
Investment Business Development Managers
Investment Managers
Market Risk Specialists
Mergers and Acquisitions Specialists
Portfolio Managers
Quantitative Analysts
Research Analysts
Risk Analysts
5. Statisticians and data analysis skills: Data analytics have been identified
as a key area for the industry.
6. Actuarial skills: the following skills have been identified;
Qualified and Student Actuaries
Reinsurance Actuaries
Short-term Insurance Actuaries

Specialist Actuaries required for the implementation of financial

regulation
Registered Short-term Insurance Actuaries
38

7. Underwriting Skills
8. Sales and Distribution Skills: Skills shortages include;
Financial Advisors including Agents, Brokers and Independent
Financial Advisors
o Heads of Distribution Channels
o

Sales Managers

Broker Consultants

9. Regulation and compliance skills


10.General skills
Accounting Experts at all levels
Branch Managers
Business Bankers
Chartered Accountants
Claims Assessors
Claims Specialists
Customer Relationship Managers
Engineers
Human Resources Specialists
Legal Experts
Middle and Senior Management
Recruitment Managers
Risk Surveyors
Risk Assessors
Statisticians
Strategists
Taxation Specialists
11.Basic Education as a cause of Skills Deficits: There is recognition that the
root cause of the skills deficit is the poor standard of basic education
received before students seek to enter the job market or proceed to
tertiary level education. According to the Financial Services Sector
Assessment Report (2014) mathematics is a crucial determinant that will
determine whether school leavers will be able to pursue opportunities and
careers, occupations in the financial services sector.

When one compares the demand for finance scarce skills across occupational
categories it is clear that the greatest demand is in occupational category Group
2 i.e. Professionals.
The following table presents current scarce skills at a national level in the
absence of Western Cape data.

39

Table 7: Demand for Financial Services Occupations by Occupational


Group 2011
Occupational category

Number of
people
needed
150
2 860
90

% of total
need

1. Managers
2.Professionals
3.Technicians and Trades
Workers
4.Community and Personal
6
Service Workers
5.Clerical and Administrative
864
Workers
6.Sales Workers
136
7.Machinery Operators and
Drivers
8.Elementary Workers
5
Total
4 111
Source: Fasset Scarce Skills Guideline 2012

3.6
69.6
2.2

% of total
employment
in category*
1.1
9.1
0.9

0.1

0.7

21.0

2.9

3.3

9.1

0.1
100.0

0.1
4.4

During the 2013 2014 period the Work and Skills programme contributed an
estimated 42 jobs to intermediary skilled NQF level 5 jobs spanning occupational
groups 4-7.

None of the current WCG skills development interventions

addresses scarce skills requirements in the management and professional


occupations and at NQF level 6.
The following diagram maps the demand for scarce skills across different
occupational

categories

and

highlights

addressed.

40

which

skills

are

currently

being

Figure 7: Supply (SDIs) and Demand of Finance and Business Services


Sector Scarce Skills

41

MANUFACTURING, ENGINEERING AND RELATED SERVICES


The sector identified the following skills mismatch;
At a management level there is a shortage of experienced, high level managers
committed

to

the

industry

and

who

have

strategic

thinking,

change

management, management excellence, conceptual analysis and problem solving


skills.
At the operator levels there is a need for multi-skilling. There is also an
increasing demand for artisans and apprentices to use and maintain the
technology that is increasingly being adopted by industry.

42

Figure 8: Manufacturing Sector Scarce Skills

43

The following table presents baseline demand projections for manufacturing


scarce skills in the Western Cape for the period 2014-2018. These projections
include new positions to be created and replacement demand.
Table 8: Demand for Manufacturing, engineering and Related Services
Occupations by Occupational Group 2014-2018
Occupational Group
1. Managers
2. Professionals
3. Technicians and Associate
Professionals
4. Clerical Support Workers
5. Service and Sales Workers
6. Skilled Agricultural, Forestry,
Fishery, Craft and related Trades
Workers
7. Plant and Machine Operators
and Assemblers
8. Elementary Occupations
Total

2014
636
406
694

2015
648
413
707

2016
660
420
719

2017
672
428
733

2018
685
435
746

228
532
163

231
541
165

236
551
168

240
561
172

245
571
175

1 188

1 210

1 234

1
258
938
957
974
993
4 786 4 872 4 962
5
056
Source: Manufacturing, engineering and related services SETA (merSETA),
Western Cape Regional Sector Skills Plan October 2013

1 282
1 012
5 151

When one compares the demand for manufacturing scarce skills across
occupational categories it is clear that the greatest demand is in occupational
category Group 7 i.e. Plant and Machine Operators and Assemblers.
The Artisan Development and Work and Skills programme of the Department of
Economic Development and Tourism provides training in NQF levels 5-6 which is
somewhat aligned where the greatest demand is in terms of occupational
categories.
During the period 2011-2014 a reported 807 jobs were created although an
estimated 3 042 candidates were beneficiaries.

When compared to the skills

demand for occupational category Group 7 for the Western Cape for these
occupations, there seems to be traction in terms of trying to meet the demand
for these occupations. This is reflected in the following graphic.

44

Figure 9: Supply (SDIs) and Demand of Manufacturing Sector Scarce


Skills

45

WHOLESALE AND RETAIL TRADE


The Wholesale and retail trade sector is a major growth sector of both the
national and provincial economies. Nationally this sector employs approximately
19 % of the total active workforce. Most entrants to the industry that are
supplied by institutions were found to be not practically ready for the work
environment and required considerable further proactive work by the industry.
While the sector is a big employer, many occupations have a low job status and
low wages (W&R Seta: 2013/14).

46

Figure 10: Wholesale and Retail Sector Scarce Skills

During the 2013 2014 period the Work and Skills programme contributed an
estimated 21 jobs to intermediary skilled NQF level 5 jobs spanning occupational
groups 4-7.
None of the current WCG skills development interventions addresses scarce skills
requirements in the management and professional occupations and at NQF level
6.
47

Figure 11: Supply (SDIs) and Demand of Wholesale and Retail Sector
Scarce Skills

48

The aforementioned analysis on the demand for and supply of jobs from the SDIs
seems to suggest that the programmes are for the most part supporting scarce
49

skills in the economy. However, there is recognition that the quantum of need for
these skills far outweighs the supply that is provided through the SDIs. Over the
past three years a total of 5 388 candidates were supported in developing scarce
skills in the Western Cape economy across the various sectors.
The economy is constrained by a lack of skills which necessitates creative
interventions. The aforementioned discussion on the impact of the SDI on job
creation and growth shows that the programmes are designed to promote
employment and growth. However, some are better conceptualized in their
design and are more targeted in their approach than others. The key informant
interviews highlighted that those programme managers who regularly engaged
with the private sector and other stakeholders had better outcomes than others.
For example the programme managers for two programmes in the DTPW and
DEDT regularly engaged with a broad spectrum of stakeholders from both the
public and private sectors which shows in the positive response from
beneficiaries attending these programmes. This reinforces the fact that if there is
extensive understanding of the demand for skills in the economic sectors in
which departments operate they are more likely to develop a response that will
improve the acquisition of skills and workplace experience.

The table below enumerates 9 categories which show the number of


beneficiaries, level and type of educational qualification acquired, number of
candidates, if there is a practical work component, whether the course is
accredited, its duration, jobs created.

50

Table 9: Overview of Key Statistics Pertaining to the SDIs by Programme 2011 -2014
PROGRAMM
E

W&S
ADP
NYS
Masakh
Isizwe
DTPW
Internship

TOTAL
(R)

TYPE OF
QUALIFICATI
ON *

PRACTICAL
WORK
COMPONE
NT
YES
YES
YES
YES

ACCREDIT
ED

NQF
LEVEL

DURATION

YES
YES
YES
YES

5
5-6
3-5
7-10

YES

YES

6 months
18 months
9 months
Duration of
studies
9 months

900 000

35

DTPW
Apprentices
hip
Agri
Internship

3 800 000

77

EC,IC,NC

YES

YES

2-4

1-3 years

1 890 000

196

13

YES

NO

5-10

1 year or
less

Agri
External
Bursaries
Agri YPP

2667 000

114

15

NO

YES

4-10

Duration of
studies

4 068 000

18

HC,
DAC,BD,M,Ph
D
NC, HC,
DAC,BD,M,Ph
D
M,PhD

YES

YES

8-10

3 700 000

41

GC,EC,IC,NC,H
C

NO

YES

1-5

4 000 000
114 582 000

718
5 388

HC

YES

YES

Duration of
studies
Duration of
learnership
and
internship
1 year

PAY
TOTAL

000
000
000
000

TOTAL
JOBS
CREATE
D
809

HC
HC/DAC
IC-HC
AD, BD, M,
PhD
NC

Agri
Partnership

21 700
16 866
3 0991
24 000

NUMBER
OF
CANDIDAT
ES
2 342
700
910
237

228

1 078

51

* See Integrated Qualifications Framework

52

The table shows that the programmes were all accredited and provided a theoretical
and a practical component in their design. Each of the interventions involved the
academic sharing of knowledge in a class-room environment and a practical
component which involved on-the-job experience in the workplace. There seemed
to have been a measure of success in that all the beneficiaries indicated higher
employability and employment after their engagement with the skills development
interventions. For example,
-

Fifity five percent of beneficiaries of programmes in the DoA were


unemployed before the SDI. After the training 60% were employed.

Close to 100% of beneficiaries were unemployed before they attended the


NYS programme. After the training 30% of respondents reported that they

were employed.
Sixty one percent of Masakisizwe beneficiaries reported that they were
unemployed before the SDI. After the training 77% of respondents reported

being employed.
Ninety percent of Work and Skills beneficiaries indicated being unemployed
before the training. After the training 65% were employed.

Despite the positive design aspects of the projects, there were a number of factors
than detracted from the efficacy of the programmes which relate primarily to
design. These include: Poor coordination of SDI at the programme level and the
inadequate planning. These issues are discussed in detail in the section dealing with
the target group responses to skills development interventions.

5.2.1
THE TARGET GROUP RESPONSES TO SKILLS
DEVELOPMENT INTERVENTIONS
The next section looks at the target group responses to skills development
interventions. The objective of this section is to:
1. Determine whether the skills development programmes reached their
intended target populations;
2. Provide an evaluation of the skills development programmes from the
perspective of programme beneficiaries.

52

This section deals with seven programmes: the Internships, External Bursaries and
the Young Professionals programme at the Department of Agriculture, the NYS
programme, Masakh iSizwe programme, the Work and Skills programme and the
Premiers Advancement of Youth Programme.
The evaluation of the target group responses to skills development interventions in
the respective programmes is informed by three indicators that were tested with
respondents who were enrolled in the respective skills development programmes.
The first indicator tested the current employment status of programme participants,
employment history and the perception of participants to their employability since
completing the programme. The second and third indicator reports on how
participants experienced the respective programmes.
This assessment report consists of three parts. The first part presents an
assessment of the extent to which skills development programmes reached their
intended target populations. The second part is the assessment as informed by
participants responses to the above stated indicators. The third part provides
concluding comments.
Table 10: Skills development programmes and their intended target
populations
Programme
Agriculture
Internship

Target Population
Unemployed
Matriculants, Higher
Education Agricultural
Students and Graduates

External
Bursaries

Underprivileged youth
studying in agriculture
scarce fields with
preference given to
youth from identified
rural areas.

Young
Professionals

Historically
disadvantaged students
studying in agriculture
scarce skills at Honours,
Masters and PhD levels.
Unemployed
youth

National

Youth

53

Population Reached
Of the 15 participants interviewed, 9
were
unemployed
when
they
received the internship, 13 had a
matric, 14 were Higher Education
agriculture students and 1 Graduate.
All four of the participants reached
were Youth between the ages 20-27
and were studying scarce agricultural
fields: civil engineering (1), civil
design and surveying (1), agricultural
administration (1) and viticulture and
oenology (1).
The one participant reached was
studying towards a Master of Science
Degree in Agriculture.

Of the 20 participants interviewed 17

Service (NYS)

Masakh I Sizwe

Work and Skills

Premiers
Advancement
Youth (PAY)

of

between the ages of 18


and 35 years with
minimum
Grade
8
education.
Historically
disadvantaged youth
with matric studying
engineering, planning,
quantity surveying and
transport economics at
Higher Education
Institutions.
Unemployed
South
African Youth between
the ages of 18 and 35
with matric residing in
the Western Cape.
Recent
matriculants
who are between the
ages of 18 and 24.

were under 35 years old, 19 had a


matric and 19 were unemployed at
the start of the programme.
Of the 18 participants 15 were under
35 years old, all had matric, 9 were
studying engineering, 3 construction
studies, property and the built
environment;
1
architecture,
1
landscape and 3 could not be
determined.
All participants were under 35 years,
18 were unemployed and 15 had
matric.

Of the 20 participants 17 were


between the ages 20 and 24, and all
were matriculants.

From the above table it is clear that all of the programmes, for the most part,
reached their intended target groups.
In what follows is a description of the responses of beneficiaries per department.

Programme: Agriculture Internship and Learnership: 20082014

Description of Beneficiaries
A total of 20 beneficiaries of this programme completed the survey of which the
greater majority (55%; N=11) were females (Table 11). Although the beneficiaries
were all part of an agriculture programme they indicated to be part of different
programmes. Fifteen of the beneficiaries were agricultural interns, another four
were part of the external bursary programme and one was enrolled in the young
professional programme.
The average age of beneficiaries interviewed was 25 years with the oldest
participant being 38 years and the youngest 20 years. To establish the educational
status of the beneficiaries, individual respondents were asked to identify the highest
level of education that they have completed. The majority of interns (80%, N=12)
54

indicated having completed a qualification higher than Grade 12. For all those
taking part in the external bursary programme (N=4) their highest educational level
was determined to be a degree or diploma. The one participant that took part in
the Young Professional Programme indicated a post graduate Master of Science
degree.
The duration of the skills training programmes differed for the beneficiaries with the
majority of beneficiaries (N=8) being part of a 12 month programme. Another four
were part of an eighteen month programme, three for a few weeks per year and one
for a period of three and a half years. Beneficiaries took part in a range of skills
development programmes ranging from diplomas and degrees. A list of the
programmes is provided in the table below. Reporting on the specific skills they
were taught beneficiaries reported a range of skills of which half related to on-farm
technical skills and the other half to farm management. A list of the specific skills is
provided in Table 14 below.
Table 11: Gender Distribution of Beneficiaries
Skills Development
Programme

Gender

Total

Males

Females

Count

Count

Count

Agricultural internship

15

75

External bursary
programme
Young professional
persons
Total

20

11

20

100

Table 12: Highest Educational Level Completed


Skills Development
Programme

Educational Level

Count

Grade 12
+
Count

Count

Agricultural internship

12

15

External bursary
programme
Young professional
persons
Total Count

14

20

30%

70%

100%

Total %

Grade 12

Total

55

Table 13: Skills Development Programmes


Skills Programme
Agricultural Internship

BA social dynamics

External bursary
Programme
Bachelors in Agricultural
Administration
Diploma in Civil
Engineering
National diploma

B. Agriculture

Viticulture and oenology

National Diploma in Public


Administration
General administration

Young Professional
Persons
MSC

Operations support serviceoffice of the director


Bachelor of Agriculture
Hons. Economics
Civil engineering diploma
Bachelor of Veterinary Science
Diploma in Agricultural Support
Diploma in Animal Production
Diploma in Farmer Support and
Development
Bachelor of Veterinary Science
Diploma Civil Engineering
Diploma in Agricultural
Extension

Table 14: Skills Training Received


Skills Training Received
Agricultural Internship
General admin, finance,
procurement, supply chain.
Office management/ Microsoft
Administration and looking after
PAY interns.
Farming

External bursary
Programme
Communications, research,
& presentations.
Internship: marketing;
surveying/ designing
Civil design work and
surveying
Winemaking

Admin skills; telecom skill;


writing reports
Administration, small stock and
grains.
Surveying, structure design,
technical drawing

56

Young Professional
Persons
Time management /
Budgeting

Dealing with animals.


Small farmer support,
community development,
engineering and irrigation
systems.
Daily management of dairy
farm.
Small farmer support, people
skills, procurement.
Practical veterinary skills.
Agricultural groundworks,
drainage, fencing.
Project organising, planning,
farmer support.

Evaluation of skills development programmes in the Department of


Agriculture
At the time of the training 55% of respondents indicated that they were unemployed
with 40% having been placed in a job following the training. When testing the
employment status of beneficiaries at the time of the interview, 60% indicated
being employed.
Asked about suggestions towards possible improvements for considerations by the
programme managers beneficiaries offered the following recommendations;

Departments must plan and develop prescribed duties for interns before
interns are placed in departments. In general the department must prepare

itself better for the internships.


Improve communication pertaining to bursaries
Raise awareness in communities of the programmes
Increase the duration of the internships
Coordination of the programme needs to be improved. One participant
described the current programme as ad hoc and piece meal. Another

responded commented that Currently no real programme [is] in place.


Rotate interns through the sub-programmes to get different exposure to the

various aspects of agriculture


The department must take care to appoint qualified supervisors
More focus should be given to aspects related to time management and

administration
Include job placement and job search support in the programme

57

Asked about any negative aspects related to the programmes only 5 respondents
raised some issues, which included the following;
There were some beneficiaries that indicated having had nothing to do during
their internships which they found rather frustrating.
According to some beneficiaries, PAY interns received some remuneration to
cover their costs, which was not the case for all beneficiaries. The fact that
PAY interns had all of their cost covered caused much resentment amongst
other interns.
There seems to be a need to assist beneficiaries in the engineering
programme to register with ECSA (Engineering Council of South Africa). In
order for you to be placed in a job after your training you need to be
registered with ECSA. This is usually such a tedious and drawn out affair that
people just leave or find alternative employment.
Three respondents indicated that the training received was good. Unfortunately no
further information was provided to explain which aspects and in what way the
training was good. All respondents indicated that the programme increased their
employability

Programme: NYS, 2011-2012

Description of beneficiaries
A total of 20 beneficiaries completed the survey. The majority (65%; N=13) of
respondents were male. The average age of beneficiaries interviewed was 26 years
with the oldest being 38 years and the youngest 22 years. To establish the
educational status of the beneficiaries, individual respondents were asked to
identify the highest level of education that they have completed. All but one
respondent, who has an educational level lower than Grade 12, indicated their
highest level of education as Grade 12.
All respondents were part of a nine month training programme. Responding to the
question regarding what skills training individual beneficiaries received, a range of
skills were reported. The skills mentioned included the following, air conditioning,
electrical, bricklaying, road works, plumbing and painting (see Table 15). Asked

58

about the specific skills they were taught all beneficiaries indicated to have learned
specialist skills related to the specific programme in which they took part.
Table 15: Skills Development Programme
Type of Skills Development
Programme
Air conditioning

Count

Electrical

Bricklaying

Road works

Plumbing

Painting

Evaluation of skills development programme


At the time of the training all but one respondent was unemployed. When asked if
they were placed in a job subsequent to the training and 6 month work experience
placement at a contractor host site, all respondents responded negatively,
indicating that no job placements post 6-month work experience took place for
students

within

this

programme.

Pertaining

to

the

employment

status

of

beneficiaries as at the time of the survey, only six respondents (that is 30%)
indicated to be employed.
Asked about suggestions towards possible improvements for considerations by the
programme managers beneficiaries offered the following recommendations;

Select participating companies where students will be doing their practical


carefully. Make sure the supervisors at the participating companies have
planned and prepared and can provide adequate supervision during the

practical period.
Include more practical sessions in the work environment, visiting of sites,

than spending time in the training centre.


A number of students commented that the courses need to be extended to
allow for more learning. This was motivated by one participant in the
following way; We only received a touch of electrical training. I feel we
couldve learnt more if it was extensive enough.

59

Beneficiaries had high expectations that the certificate they received at the end of
the training would improve their chances of getting work. However, it turned out
that the training only accounts for some credit towards a N1 qualification. This was
disappointing for beneficiaries since many are not in a position to attain the
additional credits needed for a N1 qualification and to progress from there. There
was also a complaint that beneficiaries did not get feedback on whether they have
been successful or unsuccessful in a specific job application. Beneficiaries also
indicated that they needed assistance to find employment following the training.
One participant requested that male and female beneficiaries should be treated
equally in the training.
Eight respondents indicated that the content and format of the programme was
good. Unfortunately no further information was provided to explain which aspects
and in what way the training was good.
All respondents indicated that the programme increased their employability.

Programme: Masakh Isizwe, 2008-2013

Description of beneficiaries
A total of 18 beneficiaries of this programme completed the survey. The majority
(61%, N=11) of the respondents were female. The average age of beneficiaries is
26 years with the oldest participant being 41 and the youngest 20 years. To
establish the educational status of the beneficiaries, individual respondents were
asked to identify the highest level of education that they have completed. All
respondents indicated to have completed an educational level higher than Grade
12.
The duration of the training programme depending on the diploma and degree
programme they were on and the number of years they received the bursary.
In assessing the different skills training individual beneficiaries received a range of
skills was reported including both technical and soft skills. The technical skills
reported are related to the built environment with soft skills included such as
leadership skills and personal development and staff management. The technical

60

skills were in the fields of civil, electrical and mechanical engineering, building and
construction, architectural design, landscaping and preparation of food crudits.

Evaluation of skills development programme


At the time of the training the greater majority of respondents (61%) were
unemployed. Although only three of the beneficiaries were placed in a job following
the training the majority (77%, N=14) were employed at the time of the survey.
Asked about suggestions towards possible improvements for considerations by the
programme managers most of the beneficiaries responded that they experienced
the course very positively and had no suggestions towards its improvement. Three
suggestions that were posed by the beneficiaries included:

The matching of industry partners with the study field of the beneficiaries. For
example the different engineering students should be matched with their

specific engineering field.


To advance the learning experience of beneficiaries, interns should be given

the opportunity to observe their mentors in the workplace.


There should be better communication between coordinators and students.

When asked about negative aspects of the programmes only five respondents from
the total eighteen, indicated concerns. The first concern mentioned by two
beneficiaries addressed communication between the coordinators of the course and
the beneficiaries. According to the respondents communication with students needs
to be improved. Communication regarding finances seems to be a particular
concern. Another two aspects that probably also relates to communication between
the coordinators and students are (a) an apparent lack of knowledge with regards to
the content and objectives of the progamme, I was not aware of what Masakh
Isizwe was about, and (b) an expectation that an invitation to the awards ceremony
implied that the invitee is to receive an award, Students get invited to awards only
to find out there were no awards for them. Lastly one respondent referred to the
fact that not all students were placed in employment subsequent to the training.
All respondents indicated that the programme increased their employability.

61

Programme: Work and Skills Programme; 2009-2013

Description of beneficiaries
A total of 20 beneficiaries of this programme completed the survey of which the
greater majority 65% were females. The average age of beneficiaries was 27 years
with the oldest participant aged 34 and the youngest 22 years. To establish the
educational status of the beneficiaries, individual respondents were asked to
identify the highest level of education that they have completed. The majority of the
group (75%) indicated having their Grade 12 qualification with four (20%) indicating
having completed a Grade lower than Grade 12. One respondent indicated having
completed a post matric qualification (Table 16).
Table 16: Level of Education Completed
Education

Count

No-matric

20%

15

75%

5%

20

100%

Matric
Matric +
Total

All respondents were part of a six month training programme during which they
took part in skills training. Four took part in programmes that were work force
related, two in programmes related to the tourism and hospitality industry and one
in the wellness, food and beverage programme. Asked about the specific skills they
were taught the majority indicated to have learned skills that can be described as
profession specific. Other skills taught related to people skills including how to
function in the work environment and customer care, time management and life
skills.
Table 17: Skills Training Received
Skills training received
Profession specific skills

Count
12

People skills (work environment &


customer care)
Time management

Life skills

62

Total

19

Evaluation of skills development programme


At the time of the training 90% (eighteen respondents) were unemployed. The
programme seems to exhibit a very high placment rate with all respondents
indicating that they were placed in a job subsequent to the training. When testing
the employment status of beneficiaries as at the time of the survey, 65% (that is
thirteen), indicated being employed.
Asked about suggestions towards possible improvements for considerations by the
programme managers only two suggestions were offered;

To extend the course to exceed six months


The programmes must have a stronger focus on theory to ensure a better
understanding of concepts by beneficiaries

When asked about any negative aspects to the programmes the following responses
were provided;

Planning of the programmes has to be such that it would ensure the

placement of all students following the training.


Extension of the training period as the current time frame does not allow time

for sufficient learning to take place.


Allowances needs to be increased.
Administration regarding the presentation of certificates has to be done
better. This comment was given by a student who did not receive a
certificate.

All respondents indicated that the programme increased their employability.

63

Programme: PAY 2012

Description of beneficiaries
The average age of beneficiaries is 21 years with the oldest participant being 33
and the youngest 20 years. To establish the educational status of the beneficiaries,
individual respondents were asked to identify the highest level of education that
they have completed. The whole group (N=20) reported an educational level of
Grade 12.
All respondents were part of a 12 month programme. The majority (75%; N=15) of
beneficiaries received life skills training followed by work readiness training (35%,
N=7) and, computer skills and introduction to government training (20%, N=4).
Other skills taught included administration skills, presentation skills, work ethics,
organising skills, customer care, finance and scanner operating skills.
Table 18: Skills Training Received
Skills

Number

Life skills

15

Work readiness

Computer skills

Introduction to
government
Administration

Presentation skills

Work ethics

Organising skills

Customer care

Finance

Scanner operator

Evaluation of skills development programme


All the programme beneficiaries were unemployed at the time of the training and
received a 12 month internship placement in a Western Cape Government
department following the work readiness training. Only eight of the respondents,
that is 40%, were employed at the time of the survey.

64

Asked about suggestions towards possible improvements for considerations by the


programme managers beneficiaries offered the following recommendations;

Include a departmental induction course prior to the start of the internship.


This suggestion was supported by a number of beneficiaries and seems to be

the greatest need experienced by beneficiaries.


Include a broader spectrum of skills training to include subjects such as
communication training; entry level finance and administration course; job

search, preparing a CV and preparing for a job interview


Extend duration of training
Provide job seeking support
Encourage self-learning

When asked about any negative aspects to the programmes only two responses
were received with all other beneficiaries indicating that everything was good. The
one comment related to the perception of one respondent that interns are used for
tasks that permanent staff do not want to do. The other comment relates to the
fulfilment of the course objectives. According to the participant the completion of
learner drivers licenses was part of the stated objectives, an objective that was not
realised.

All

respondents

indicated

that

the

programme

increased

their

employability.

Concluding comments
From the above table it is clear that all of the programmes, for the most part,
reached their intended target groups.
In general the skills development programmes included and evaluated in this report
benefited both males and females between the ages of 20 to 38 years. This is in
line with the focus of the SDIs of developing skills of youth (people aged between 15
and 35 years). Beneficiaries had the opportunity to learn from a number of skills
programmes and were taught a broad range of skills ranging from job specific
technical skills to managerial skills.
The value of the skills learned are clearly shown by the responses of beneficiaries
who responded positively when asked if they deemed themselves employable
following the completion of the skills development interventions by departments.
This response indicates that beneficiaries did not only learn relevant and necessary
65

skills, but following the training are also confident in the value of these skills in
assisting them to first of all find employment and secondly enabling them to do the
work in the area in which they have been trained.
The great majority of beneficiaries indicated to have been employed at the time of
the beneficiary survey and had been placed in employment positions following the
training. There were however others that were unemployed at the time of the
survey. Eight out of 20 beneficiaries in the PAY programme were employed at the
time of the survey. Fourteen out of 18 beneficiaries in the Masakh i Sizwe
programme were employed at the time of the survey.

Twelve out of 20

beneficiaries in the Agriculture programmes and 13 out of 20 in the Work and Skills
programme. The fall-out rate out of employment does seem to be somewhat of a
concern and needs attention. One possible strategy, derived from student
responses, is putting a structure in place that could assist beneficiaries with
applying for a job and securing employment.
Another aspect that seems to be of concern is the apparent lack of planning and
coordination specifically pertaining to interns, in their tasks, functions and
responsibilities. Internships where beneficiaries sit around and do nothing lacks in
value in that it is unproductive for the relevant department and a waste in effort
and time for the beneficiary. All departments need to understand the objectives of
internships and be committed to assisting beneficiaries in gaining the relevant
experience.
In closing, however, it would seem that the programmes are filling an important
function in that it equips beneficiaries with the necessary skills that not only add to
their self-confidence but also leaves them better equipped to enter the job market
(See also Annexure D for beneficiary survey results).

66

5.2.2
MAJOR FACTORS THAT CONTRIBUTE TO SKILLS
MISMATCH IN THE WORKFORCE
1. Lack of / in-effective use of readily available and relevant data to inform
decision making
The lack or ineffective use of available data to inform design and development of
skills interventions results in misalignment between supply and demand, lack of
understanding of the quantum of need and an inability to locate a specific skills
intervention within a suite of interventions that span the spectrum of sector needs.
2. Lack of economic development strategy
The lack of a mutually shared and clearly articulated economic development
strategy for the Western Cape results in there not being an overarching framework
that guides and informs the design and development of coherent skills development
interventions.
3. Lack of clear distinction between government resource development
and skills interventions in support of economic sectors
Skills development interventions can be grouped into three classifications. These
are:
1. Internal to government training, capacity building and human capital
development. Including, funding skills development interventions to address
skills shortages in a particular department.
2. Skills development that seek to address skills shortages in a departmental
constituency.
3. Skills development that addresses scarce and critical skills identified by the
economy and key stakeholders in the Western Cape economy.
These classifications can also be used for programming, budgeting and monitoring.
4. Lack of standardized reporting framework
The lack of a standardized reporting framework for skills interventions makes it
impossible to effectively coordinate skills interventions across different government
departments. The integrated qualifications framework can potentially serve as such
a standardized framework.

67

5. Lack of provincial information on sector needs


Apart from the Manufacturing, Engineering and Related Services SETA regional
sector skills plan (2013) and Financial Services Sector Assessment Report (2014)
there is a lack of information on sector needs and demands at a provincial level.

5.2.3
IMPROVING SKILLS DEVELOPMENT
INTERVENTIONS
This section addresses how interventions can be strengthened to make them more
efficient and effective. It is divided into two parts. Part one looks at cross-cutting
issues and part two looks at programme specific interventions.

Cross-cutting interventions
Internal Provincial Government Needs and External Economic Sector
Needs
It is important to distinguish between skills development to address and supply
internal Provincial Government needs and skills development to address external
economic sector needs. Many provincial skills development initiatives have either
explicit or implicit twin objectives of serving both government and sector needs.
This will provide an indication of the size of the need for a particular scarce skills
resource at a provincial level.
Coordination required at point of entry into the labour market
There are a number of state and semi-state role-players in the skills development
arena who are not coordinating their efforts at the point of entry into the labour
market. These role-players are Department of Labour, Department of Higher
Education and Training, Department of Basic Education, FET Colleges, Provincial
Department of Education and Sector Education and Training Authorities (SETAs).
The Department of Economic Development and Tourism could play a leading role in
this coordination, potentially facilitating coordination amongst all state and semistate role-players through the Provincial Skills Forum which would have to be
additionally resourced.
Improving the quality of Human Capital
Amongst the youth a key problem across sectors has been the quality of the human
capital before they enter skills development programmes. Young people with higher
skills levels and education levels, particularly with Mathematics and Science, will be

68

absorbed more readily than others. This requires intensive intervention at highschool level, prior to individuals coming to the labour market.
Recognition of Prior Learning
Some individuals have extensive work experience prior to starting on a skills
development initiative. However, this experience tended to not be considered in
terms of any formal recognition. The opportunity to have the period of time that the
individual has worked recognized as prior learning and some form of qualification
recognition presents itself. A strategic aspect of the Western Cape Government skills
development interventions should be a drive and investment in recognition of prior
learning.
Education Training Authorities
A key partner to work with has been identified as the education training authorities
because thats where there is a large amount of developmental money for training.
While the Provincial Government has a very good relationship with educational
authorities, there is a sense that this can be more effectively harnessed to access
additional funding for skills development interventions.
Further Education and Training (FET)
Further Education and Training is paramount. There is a recognition there needs to
be interventions at that both legs of FET, grades 10-12 and the phase at FET
Colleges. Interventions in this area will improve the quality of the human capital
that enters post-secondary education skills development interventions.
Curriculum Development
A strategic area for improving skills development interventions is to re-assess
programme content and curricula in relation to sector needs and best-practice.
Private Sector and Non-Government Organisations
A critical success factor for the sustainability of skills development interventions is
partnerships with the private sector and NGOs. The role of the private sector is to
employ and give learner opportunities. The role of NGOs can be to assist in the
financially disadvantaged communities with identifying potential students or
candidates and try and nurture them towards the right direction. In the case of the
PAY programme the Cape Learning Initiative played a critical role as implementing
agent.
Cooperation and Streamlining of WCG skills development Interventions
69

There needs to be cooperation and streamlining of training programmes between


the different departments providing training to the unemployed youth in the
province.
A first order of business for cooperating departments or a coordinating body like the
Provincial Skills Forum could be to coordinate or develop a qualifications map that
shows how an individual can progress from an elementary level worker who
graduates from the NYS programme, through the intermediary level to higher levels.
Need for adequate Departmental Planning
Many of the skills development interventions have a work placement component in
a provincial government department. A key feedback from beneficiaries and
interviewees has been the need for improved departmental buy-in, planning,
preparation, mentoring and management of beneficiaries in the respective
provincial government departments or agencies.
Aligning of Beneficiary Expectations and Needs
A key area for improvement is aligning beneficiary expectations and needs with
departmental operations and requirements. This would involve greater upfront
alignment of intern expectations and programme objectives and capabilities.
Partner with Private Sector
Partner with and involve the private sector in the design, development and
implementation of skills development interventions.
Skills Development Track
Skills development tracts with accredited qualifications must be communicated
broadly to potential beneficiary audiences. In addition to this, a mechanism must be
established that will allow an individual on the programme to have ongoing
accredited training during the time at host companies and afterwards, whether the
person is employed or not.
Improve the Quality of Trainers
A key area for making skills development interventions more efficient and effective
is to improve the quality of the trainers.
Red Tape
Reduce the RED TAPE involved with funding of programmes and with day-to-day
operations.

Programme specific interventions


Agriculture Internship Programme

70

Recommendation: The programme identified the following recommendations for


improvement:

Facilitate buy-in into the programme by departmental staff.


Expand placement of interns in the private sector through a greater

partnership with private sector


Address apparent unhappiness regarding different benefit schemes of
different internships in the Department of Agriculture.

Agriculture Young Professional Persons (YPP) Programme


Recommendation: The programme identified the following recommendations for
improvement:

Facilitate buy-in into the programme by departmental staff.


Increase the budget to include more bursaries for young Professionals.
Expand placement of YPPs in the private sector through a greater
partnership with
private sector.

Agriculture External Bursaries and Scholarship Programme


Recommendation: The programme identified the following recommendations for
improvement:

Increase the budget to provide more scholarships and bursaries.


Develop and implement an awareness campaign that promotes agricultural

occupations as attractive career choices.


Increase support for maths and science at high schools in the rural areas.
Improve partnerships with the private sector.

National Youth Service (NYS) Programme


Recommendation: There needs to be cooperation and streamlining of training
programmes

between

the

different

departments

providing

training

to

the

unemployed youth in the province.


A first order of business for cooperating departments or a coordinating body like the
Provincial Skills Forum could be to coordinate or develop a qualifications map that
shows how an individual can progress from an elementary level worker who
graduates from the NYS programme, through the intermediary level to higher levels.
Professional Development (Also known as MasakhiSizwe) Programme
Recommendation: Establish a mechanism, structure or organization that
employs graduates without experience and facilitate the development of this
experience.
71

Given that the graduates of this programme are essentially an Esprit de Corps for
the economy and for the government it is recommended that an element of
prestige be incorporated into the programme. This could take the form of a
partnership with the Private Sector that acknowledges all the graduates of the
programme with an annual awards ceremony.
Work and Skills Programme
Recommendations: The following recommendations are proposed;
1

Extend the duration of the skills and work readiness component and

enhance the content;


Supplement the training with basic and core competencies required for

entry level jobs in targeted sectors.


Develop skills development tracts with accredited qualifications for

participants.
The life skills and work readiness component of the course must be
enhanced to more than just a few days and must be augmented with
training in basic core competencies based on entry level jobs in
specific strategic sectors.

In addition to this, a mechanism must be

established that will allow an individual on the programme to have


ongoing accredited training during the time at host companies and
afterwards, whether the person is employed or not.
Artisan Development Programme
Recommendation: The programme identified the following recommendations for
improvement:

Increase the quality and quantity of technical trainers.


Make CBMT training a compulsory component of the curriculum.
Reduce the RED TAPE involved with funding of programmes.
Create articulation between General Education and Training (GET), Further
Education and Training (FET) and Higher Education and Training (HET) to

increase career opportunities for artisans.


Reduce duplication of funding for similar programmes and concentrate on
industry demand.

Premier's Advancement of Youth (PAY) Programme


Recommendation: The programme identified the following recommendations for
improvement:

72

Longer

departments.
More work readiness modules.
Greater upfront alignment of intern expectations and programme

training

prior

to

placing

students

into

government

objectives and capabilities.

5.2.4 FACTORS SUPPORTING SKILLS INTERVENTION


OUTCOMES AND CHALLENGES AND RISKS POTENTIALLY
INHIBITING OUTCOMES
This section looks at what is working well to contribute or lead to achieving the
outcomes of skills development interventions and what are the constraints,
challenges or risks that may potentially inhibit the achievement of these outcomes.
Factors leading to successful outcomes of skills programme outcomes
The following key factors were found to contribute to the successful outcome of
skills interventions.
Governments interaction with economic sectors
The ability of government to interact with key economic sectors was identified as a
key factor for the success of an intervention in that the information and insight
derived from interaction with economic sectors was used to inform design and
development of specific skills development programmes.
Partnership with Private Sector and NGOs
Strong partnerships with the Private Sector and Non-Government Organizations
(NGOs) from the inception of the skills intervention were found to be crucial to the
sustainability of skills interventions.

For example, an evaluation of the PAY

programme by the Cape Learning Centre highlighted how the programme can be if
the non-state role players are involved early in the design and development of the
skills intervention.
The private sector is important as providers of on-the job practical work experience.

73

Constraints, challenges and risks potentially inhibit the achievement of


skills programme outcomes
The following cross-cutting challenges were identified.
Budget Constraints
The key constraint faced by government is the inability to scale-up these
interventions because of budget constraints.
Challenges within industry itself
One of the key difficulties in aligning the skills development interventions with
sector needs is sector differences. Even within sectors there is difficulty to conduct
sector

demands

requirements.

Amongst

companies theres

quite

a lot of

fragmentation and competition with skills which then leads to difficulties in saying
what sector needs are (Stakeholder interview).
Short-Term Firm Needs versus Long-term Sector Needs
Another key challenge is the tension between focusing on addressing long-term
sector needs versus short-term firm requirements. At a sector and a firm level,
developing high-level scarce skills requires time and funds. Many companies are
reluctant to trade-off immediate or short-term benefit for long-term firm or sectoral
gains.
Education system
There are major challenges with the education system in that it produces people
who cannot be absorbed into the economy in that the skills the education system is
providing is not good enough or does not meet sector requirements. There is a
disjuncture between what the education system puts out and what the economy
can absorb a skills mismatch. What we produce, is not what the economy wants
exactly.
Quality of Higher Education
There is a concern regarding the quality of education that engineering students are
getting. Given that one of the critical scarce resources are professional engineers
and in order for some-one to become a professional engineer, he / she must have
attended the University of Cape Town (UCT) or the University of Stellenbosch. A
74

qualification from any other institution in the Western Cape will mean that the
individual will either be a technician or a technologist. Both government and
industry needs professional engineers. The problem is that in order for some-one to
get into an engineering programme at a university, the applicant need to get at
least 80 % in mathematics and physics. The chances of getting these grades from a
financial disadvantage home are very slim and its even worse in rural areas
because some schools dont even offer mathematics and physics.
Rural areas
Most rural unemployed do not have the relevant mathematics and science subjects
to qualify for further studies.
The following programme-specific challenges were identified;
Agriculture Programmes
The following challenges were experienced in rolling out the Internships, External
Bursaries & Scholarships, Young Professional Persons and Agricultural Partnership
for Rural Youth Development Programmes.
Most rural and underprivileged matriculants do not have the relevant subjects to
qualify for further studies. Research also indicated that agricultural students and
graduates have no work experience and exposure to the practicalities of agriculture
and actual farming. Rural youth were also found not be interested in agriculture as a
career. For those who were interested, there were limited bursaries and support
mechanisms available. There was also a poor response to available bursaries and
support.
Agriculture Internship: The key challenges experienced by this programme are:
1.
2.

Lack of buy-in from certain internal departmental staff to mentor interns.


Aligning departmental activities to make optimal use of and give

maximum exposure to interns.


3. Inadequate preparation to increase the effectiveness internships.
4. Actual and perceived inequitable treatment of different interns or different
benefit schemes that accompany the different internship programmes
causing tensions and resentment amongst certain interns.
5. Limited budget and space for interns.

75

6.
7.
8.

Struggle to appropriately place graduates within the department due to


the recruitment and selection process that needs to be followed.
Language barriers for placement of interns.
Little or no support from the private sector.

Young Professionals Persons (YPP) Programme: The key challenges experienced by


this programme are:
1. Struggling to appropriately place graduates within the department due to
the recruitment and selection process that needs to be followed.
2. The provincial modernisation meant the establishment changed and this
negatively impacted the YPP programme in that a Masters graduate could
not be placed.
3. Getting internal departmental buy-in for the YPP programme.
4. Aligning departmental activities to make optimal use of and give
maximum exposure to Young Professionals.
5. Inadequate preparation to increase the

effectiveness

of

Young

Professionals

External Bursaries & Scholarships Programme and the Agricultural Partnership for
Rural Youth Development (APFRYD) Programme: The key challenges experienced by
these programmes are:
1. Most rural and underprivileged matriculants do not have the relevant
subjects to qualify for further studies.
2. Making farming and agriculture attractive as career choices to historically
disadvantaged individuals.
3. Encouraging individuals from the rural and traditionally agricultural areas
to pursue agricultural occupations.

Construction and Public Works Programmes


National Youth Service (NYS) Programme:
The key challenges experienced by this programme are:
1. Funding of the programme.
2. Outstanding certification of learners by SETAs.
76

3. Placing of learners on building sites to gain on-site experience.


Professional Development (Also known as MasakhiSizwe) Programme: The key
challenge experienced by this programme is to secure employment opportunities
for graduates due to lack of trainee posts in government and the private sector.

Work and Skills Programme: The key challenge experienced by this programme is
the perceived and real mismatches between what companies want in terms of the
skills of the labour force, and what the economy can provide immediately. This
programme is primarily a training programme designed to improve employability
skills as well as competencies of the trainees while in a live work environment.
However, potential employers, because they are productive centres and profit
driven, may not always share the same view, and tend to want someone who is
productive immediately.
Artisan Development Programme:

The key challenges experienced by this

programme are:
1. The shortage of qualified artisans and trainers to support mass development.
2. The quality of learners exiting FET colleges is very poor.
3. There is not enough focus on competency based modular training (CBMT) and
there is a limited amount of training facilities to cover all trade disciplines.
4. Policies are aimed at promoting academic careers rather than developing
multi-pronged career paths across academic and technical streams.
5. Artisanal skills are still seen as second choice careers.
6. Educational requirements for artisan development supersede the present
educational system. This is due to the increase in technology and the
economies entrance to the global market. The mind-set is to still try and
recruit dropouts to follow artisanal trades.

Premier's Advancement of Youth (PAY) Programme: The key challenges experienced


by this programme are:
1.
2.

Government departments not adequately planning for and supervising interns.


Unrealistic expectations of interns. Related to this is aligning intern needs with
departmental operations and requirements.

77

78

5.3 The Provincial Skills Forum


The PSF can be characterized as the nerve centre in the entire process of the
Skills Development Initiative and an evaluation of its role and functions sheds light
on the many areas of its operations as well as the effectiveness of the institutional
interface described above.
One of the unequivocal achievements of the PSF is the formation of relationships
that its proactive intervention has engendered. With the organization of clusters,
the intervention has brought together industry representatives, sectors, colleges
and universities, individuals and other government representatives. Without this
initiative, such a varied group of people might never have gathered in the same
room on a regular basis.
These meetings, in turn, would not have been productive without the provision of
information to all stakeholders. Department officials generally expressed a
moderate level of satisfaction with data supplied by PSF.
The development of software by PSF for use in schools to generate interest in career
choices is also seen as a good innovation. Getting more detailed information to
SETAS about the Western Cape has led to improvements. Information on careers is
more accessible and the PSF research on career awareness and e-portals is highly
valued.
Through the clusters, the PSF has looked at systemic problems and how they can be
addressed (e.g. international certification, health and safety regulations). Its
performance is seen as satisfactory in this regard.
PSF interventions have started to avert the negative consequences of shortages of
skilled people in sectors. When cross cuttings between sectors occurs it poses
particular transversal challenges i.e. if one sector has the problem about artisans it
will likely have an impact on another sector. Shortages in one sector affect other
sectors due to poaching.
The interviews revealed, though, that government funded skills development is not
without its challenges and touched on several issues that warrant reflection and, in

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some cases, serious examination of factors that possibly compromise the success of
its work.
Accurate data was one of the most common issues identified. An associated issue
was the volume of information: one informant said it would be better to receive a
newsletter once a month that provided either a synopsis, a link or key findings,
rather than a depository sitting somewhere with information that very few people
would access.
Cabinet requested the PSF to compile a report from inception to date (this is the
period the DA administration has been in power) but it has been very difficult to put
such data together. This encompasses how many people were trained, how many
people were placed, but as some departments tried to put everything together it
was difficult to see how much of that was a skills programme vs. how much of that
was an FET lead qualification. While this is where the department would want a lot
of its young people to go (or alternately, to university) the numbers on their own
were not seen as a very good indication of the investment in skills. The cost per
person being trained, it was argued, should be cheaper.
Some informants felt there was a lack of clarity on functional relationships and there
was a high degree of change of procedures and practices. The central coordination
of transversal skills was, in the view of some, is not well executed.
The structure doesnt work well for some departments and there is a perception that
the PSF is more internally focused. There were calls for greater management of the
whole process to be given to departments. The PSF should facilitate skills
development in the province on a macro level, involving all sectors and involving all
the departments.
RECOMMENDATIONS
The PSF spans the entire process of the Skills Development Initiative. In so far as its
role as a central, organizing unit is concerned, it should show leadership in the fields
of policy formulation and data collection. In this regard, it should not only be
occupied with the scarcity of skills alone on the demand side but seek measures
that can mediate the supply of lower level skills. In so doing, it can continue to
serve the growth and propulsive sectors while also stimulating demand for those
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skill levels where unemployment is highest. By striking this balance, it can gradually
lower the rate of unemployment in the province and foster the virtuous cycle of
growth through the circular flow of income, investment and taxation.
This also speaks to the way in which we understand the relationship between
investment, growth and job creation. The belief that the mismatch between skills
supplied and that demanded by industry and business is the main cause of
unemployment may be misplaced. Job creation has, for most of the time since the
industrial revolution, been a function of investment which, in turn, rests on the
prevailing rate of profit. As investors deem the rate of profit in expansion or new
ventures to be less than the risk associated with it, they are less likely to engage in
job creation, even if skills were available. This partly explains high rates of
unemployment in a number of advanced industrial economies where a mismatch
is not necessarily a problem. It would be useful to explore other policy alternatives
such as prescribed assets or stricter regulations on financial markets to stimulate
investment in sectors that are more labour intensive. Moreover, state funded skill
development programmes and placements are effectively a subsidy for businesses
who may use it because it provides additional workers without increasing their wage
bill and not because of a commitment to job creation.
The evaluation of the SDI shows that the mismatch of skills is due in part to the way
information flows between sector representatives, PSF and the programme heads in
departments and how coordination is handled owing to how that information is
understood. Placing the platform for skills development in the DEDAT has distinct
benefits, not least of which is the distinct profile it enjoys but an inter-departmental
group of well-placed officials will do much to achieve higher levels of co-ordination
and information flows. More importantly, it would create the space for such a unit to
jointly formulate an HRD Framework.
An understanding of the relationship between education and unemployment should
be made more important in policy formulation exercises. Informants pointed out
that careers are not made a part of the current curriculum in schools. If the PSF
could do this over an 8 year period it would give students a much better sense of
direction.

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The PSF should consider ways of achieving efficiencies in expenditure by looking at


possible duplication, areas of collaboration and strengthening what is already being
done. One suggestion from a department official would be to align learnership
programmes in transport and public works. While these are different sectors they
require the same generic skills. Another suggestion was for the PSF (or DEDAT) to
access funds from the National Skills Fund.
There is anecdotal information about the effects that historical circumstances and
social environments have on the period of time beneficiaries remain in their
positions after being placed. The PSF should explore the introduction of workshops
that could address social and psychological impediments to personal and career
advancement. This can be combined with learning circles a space where
beneficiaries can share their stories of admission, challenges and successes.
6

CONCLUSION AND RECOMMENDATIONS

The

above

report

evaluated

Western

Cape

Government

transversal

skills

interventions in support of growth and jobs. The information utilised to evaluate the
skills development interventions was collected though the following collection
methods:

Literature Review
Key informant interviews (strategic and operational managers)
Beneficiary Survey
Database / Catalogue
Programme Sheets

The main findings of the evaluation are:


1. The

Western

Cape

Government supported

eleven

skills development

interventions between 2010 and 2014 that sought to address scarce skills in
the economy.
2. The largest segment of the unemployed (66%) does not have a Grade 12
education.
3. The transversal skills interventions are designed to achieve employment and
growth.
4. The beneficiaries of the skills interventions programmes were generally
positive about their training and felt that their employability had improved.

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5. Skills interventions for the most part were funded by the public sector,
whether the provincial government or the Jobs Fund. No evidence was found
of the private sector providing any form of contribution to the skills
development interventions apart from hosting beneficiaries.
6. These interventions partially helped in resolving identified challenges with
regard to mismatch in supply and demand in that they only addressed a
particular subset of need. For example, many of the programmes enabled
participants to enter the job market at an entry level which prepared then
with a preliminary set of skills. The onus was then on them to find their way
to the higher levels of education.
7. These interventions contributed to employment opportunities for youth in two
ways. Firstly, all the interventions had an on-the-job work experience
components of varying durations. Many of the beneficiaries managed to get
jobs after their training as evidenced in the beneficiary survey where more
than fifty percent of beneficiaries were employed at the time of the interview.
8. With regard to funding models used, all programmes used departmental
funds except for the Artisan Development Programme and the Work and Skills
Programme

that

leveraged

R10.8

million

rand

from

the

JOBs

Fund

administered by the Development Bank of Southern Africa (DBSA) and cofunding for the Artisan Development Programme from Wholesale and Retail
Trade Sector Education and Training Authority (SETA) and the Manufacturing,
engineering and Related Services Sector Education and Training Authority
(SETA).
9. The interventions managed to reach the target groups that it sought to
address.
10.The lack of standardized reporting was identified as a key constraint in
reporting on and tracking the effectiveness of the transversal skills
interventions. Part of the problem is that programmes used different
definitions when reporting on their outcomes. For example, jobs created could

83

be interpreted as a job created whilst it could also be interpreted as a


unemployed person placed in a temporary work opportunity.
11.Factors contributing to skills mismatch include ineffective use of readily
available data to inform decision-making, the lack of a Provincial economic
development strategy, lack of clear distinction between internal departmental
skills interventions from those that seek to address scarce skills requirements
of economic sectors, the lack of a standardized reporting framework and the
lack of quantifiable information on sector needs.
12.Factors leading to successful outcomes of skills programmes include
governments interaction with the economic sectors and partnership with the
private sector and NGOs.
13.Challenges and constraints inhibiting achievements were found to include
budgetary constraints, frictions and challenges within industry, the generally
poor caliber of student produced by the secondary schooling system,
shortage of people with mathematics and science qualifications, inadequate
research and planning by government departments, lack of coordination
amongst government departments.
14.The skills development interventions have unintended consequences such as
facilitating entrepreneurial and enterprise development.
15.Transversal skills development interventions are not

being

managed

transversally they are still being managed in in a silo-like manner per


department.

Based on the main findings of the evaluation of the skills development interventions
the following recommendations are made:
1. It

is

recommended

that

skills

development

interventions

target

the

unemployed without a grade 12 education as this constitutes the largest


segment of the unemployed.
2. In addition it is recommended that the order of magnitude of the existing
skills development interventions have to quantum leap in terms of volume of
target group reached to make any significant impact on the unemployment
situation.
3. It is recommended that a greater understanding of the scarce skills
requirements of key economic and key growth sectors and subsectors is
84

needed for the Western Cape economy. Thereafter this need has to be
quantified.
4. It is recommended that reporting be standardized across departments and
that the same definitions are used by all departments. It is recommended
that both the database / catalogue with its associated fields; and the skills
demand and qualification framework developed by the project team be used
for standardization and reporting.
5. With regard to the Provincial Skills Forum (PSF) the following is
recommended:

The PSF establish and coordinates transversal sector skills


groups for each of the growth sectors of the economy.

Each sector group (except Manufacturing) to determine /


commission a calibrated understanding of Western Cape scarce
skills need and quantum of demand.

Each sector group engage the private sector and the NGO.

Each sector group determines what scarce skills at what NQF


level and OFO occupational group it will seek to address.

Each sector group manages its skills development interventions


transversally across different departments.

Targets to be determined in relation to the quantum of demand


for scarce skills at Provincial level.

Each sector group to determine sector best practices and share


within the group and with other groups.

The PSF coordinates a number of state and semi-state roleplayers in the skills development arena who are not coordinating
their efforts at the point of entry into the labour market. These
85

role-players are Department of Labour, Department of Higher


Education and Training, Department of Basic Education, FET
Colleges,

Provincial

Department

of

Education

Education and Training Authorities (SETAs).

and

Sector

Through this the

PSF will learn what others are doing in the skills development
arena and will make more informed decisions regarding where it
will focus and channeling of scarce resources.

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BIBLIOGRAPHY
1. Provincial Economic Review and Outlook (PERO), 2013
2. Provincial Economic Review and Outlook (PERO), 2014

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