Education Sector United Nations Educational, Scientific and Cultural Organization

S

kills development through the expansion of Technical and Vocational Education and Training (TVET) is increasingly seen as a critical to reducing poverty and unemployment, and also promoting economic recovery and sustainable development. The UNESCO Member States are increasingly dedicating their policy attention to respond to the demand for relevant skills in the world of work. This TVET Policy Review for South Sudan was conducted by the UNESCO in response to an official request from the Government of South Sudan. In a post-conflict context, South Sudan is facing important development challenges. A TVET system that is responsive to social and economic demands, and properly coordinated and monitored has the potentiality to contribute to addressing these multiple development challenges. The review identifies number of constraints faced by the current TVET system and strategies for improvements. The key message of this policy review is that the TVET system in South Sudan needs sustained transformation and revitalization if it is to realize its enormous potential as a contributor to the country’s development.

TVET UNESCO 7 Place Fontenoy 75007 Paris Education Sector Division for Policies and Lifelong Learning Systems Section of Youth, Literacy and Skills Development.

Policy Review

South Sudan

TVET Policy Review

South Sudan UNESCO 2014

Published in 2014 by the United Nations Educational, Scientific and Cultural Organization, 7, place de Fontenoy, 75352 Paris 07 SP, France

© UNESCO 2014

This publication is available in Open Access under the Attribution-NoDerivs 3.0 IGO (CC-BY-ND 3.0 IGO) license (http://creativecommons.org/licenses/by-nd/3.0/igo/). By using the content of this publication, the users accept to be bound by the terms of use of the UNESCO Open Access Repository (www.unesco.org/open-access/terms-useccbynd-en).

The designations employed and the presentation of material throughout this publication do not imply the expression of any opinion whatsoever on the part of UNESCO concerning the legal status of any country, territory, city or area or of its authorities, or concerning the delimitation of its frontiers or boundaries.

The ideas and opinions expressed in this publication are those of the authors; they are not necessarily those of UNESCO and do not commit the Organization. The TVET Policy Review series is coordinated by Borhene Chakroun, Chief, Section of Youth, Literacy and Skills Development. The main authors of this report are George Afeti and Stefan Thomas. Front cover photo credits: © Alli Ngethi, © Daro Justine, © Sofia Murad

Composed and Printed by UNESCO ED-2014/WS/38  CLD 2944.14

Table of Contents List of Acronyms 6 Preface

8

Acknowledgements

9

Executive Summary 10 Key findings and observations...............................................................................................10 Policy recommendations........................................................................................................12 Improving the coordination and governance of the TVET system.............................................................................. 12 Ensuring an effective and sustainable funding system............................................................................................... 12 Moving towards a more demand-driven approach: linking to growing sectors and rural development....................... 12 Expanding access and addressing marginalization ................................................................................................... 13 Adopting an incremental approach for quality development....................................................................................... 13 Better meshing the general secondary system and TVET.......................................................................................... 14 Reinforcing monitoring, evaluation and information systems...................................................................................... 14

1. The National Socioeconomic Context

15

1.1 The economic context.......................................................................................................17 1.2 The labour market.............................................................................................................21 1.3 Demand for skills from the productive sector and rural development...............................23 1.4 Conclusion........................................................................................................................24

2. The Characteristics of the TVET System

25

2.1 The education system......................................................................................................25 2.2 The provision of TVET in South Sudan............................................................................26 2.3 Public–private partnerships in TVET................................................................................27 2.4 Workplace learning and apprenticeship...........................................................................27 2.5 Conclusion.......................................................................................................................27

3. Governance of the TVET System

28

3.1 Policy trends and legal framework....................................................................................28 3.2 Intermediary authority......................................................................................................30 3.3 Conclusion.......................................................................................................................32

3

4. Financing of TVET

33

4.1 Financing strategies.........................................................................................................33 4.2 Resource mobilization and utilization...............................................................................33 4.3 Conclusion.......................................................................................................................35

5. Access and Participation

36

5.1 Perception and attractiveness of TVET............................................................................36 5.2 Female participation.........................................................................................................36 5.3 Participation of ex-combatants in TVET...........................................................................37 5.4 Conclusion.......................................................................................................................38

6. Quality Arrangements

39

6.1 Teachers and instructors..................................................................................................39 6.2 Teaching and learning facilities........................................................................................39 6.3 Integration of ICT into training provision...........................................................................40 6.4 Internal quality assurance mechanisms...........................................................................40 6.5 Accreditation of training providers....................................................................................40 6.6 Conclusion.......................................................................................................................40

7.

Relevance and Impact

41

7.1 Identification of labour market needs and skills gaps.......................................................41 7.2 Conclusion........................................................................................................................41

8. The Knowledge and Evidence Base

42

8.1 Monitoring and evaluation of education data and statistics..............................................42 8.2 TVET MISs.......................................................................................................................43 8.3 Conclusion.......................................................................................................................43

9. Recommended Next Steps

44

9.1 Improving the coordination and governance of the TVET system....................................44 9.2 Ensuring an effective and sustainable funding system.....................................................44 9.3 Moving towards a more demand-driven approach: linking to growing sectors and    rural development............................................................................................................45

4

9.4 Expanding access and addressing marginalization.........................................................45 9.5 Adopting an incremental approach for quality development.............................................45 9.6 Improving the links between the general secondary system and TVET...........................46 9.7 Reinforcing monitoring, evaluation and information systems............................................46

References 47 Annex 1: List of contacts and persons interviewed

48

Annex 2: Summary of recommendations

49

Tables Table 1: Literacy Rates......................................................................................................................................................................................15 Table 2: Poverty Profile by Urban and Rural Areas...........................................................................................................................................16 Table 3: Selected Health Data from the Human Development Report 2014: South Sudan and sub-Saharan Africa........................................17 Table 4: Selected Economic Data from the Human Development Report 2014: South Sudan and sub-Saharan Africa. .................................17 Table 5: Characteristics of the Formal and Informal Private Sectors in South Sudan ......................................................................................19 Table 6: World Bank Ease of Doing Business Rankings in 2013 and 2014 for South Sudan............................................................................20 Table 7: Selected Indicators for Infrastructure Services for Selected LDCs......................................................................................................20 Table 8: Secondary School Completers and Completion Rate by State and Gender, 2009..............................................................................26

Boxes Box 1: Regional and Global Value Chains, Industrialization and Skills in South Sudan ...................................................................................21 Box 2: Composition and Functions of TVET Apex Bodies.................................................................................................................................31 Box 3: Key Conditions for Training Fund Success.............................................................................................................................................34 Box 4: Maximizing TVET Interventions in Post-conflict Countries.....................................................................................................................38

Figures Figure 1: Predicted Population Growth in South Sudan (in Millions).................................................................................................................15 Figure 2: Annual GDP Growth Rate Forecast....................................................................................................................................................18 Figure 3: New Entrants (Age 15-24) to the Labour Market in South Sudan (in Thousands) ............................................................................22 Figure 4: The Formal Education System of South Sudan ................................................................................................................................25

5

List of Acronyms AES AfDB BMZ CAPA CBT DDR DFID EIU ETF EU EMIS FY GDP GIR GNI HDI ICT IGAD ILO IMF IOM JICA LDC LMIS MIS MTC MoCYS MoEST MoLPSHRD NDDRC NGO NIR NTQF NES ODA OECD PPP PWD RALS SDA SIDA SSR TVET

6

alternative education system African Development Bank Bundesministerium fuer wirtschaftliche Zusammenarbeit und Entwicklung (German Ministry for Economic Cooperation and Development) Commonwealth Association of Polytechnics in Africa competency-based training disarmament, demobilization and reintegration Department for International Development (UK) Economist Intelligence Unit European Training Foundation European Union education management information system financial year gross national product gross intake rate gross national income Human Development Index information and communications technology Inter-Governmental Authority on Development International Labour Organization International Monetary Fund International Organization for Migration Japan International Cooperation Agency least developed country labour market information system management information system multi-service training centre Ministry of Culture, Youth and Sports Ministry of Education and Science and Technology Ministry of Labour, Public Service and Human Resources Development National Disarmament, Demobilization and Reintegration Commission non-governmental organization net intake rate National TVET Qualification Framework National Employment Service official development assistance Organisation for Economic Co-operation and Development purchasing power parity person with disabilities Rapid Assessment of Learning Spaces Skills Development Authority Swedish International Development Agency security sector reform Technical and vocational education and training

UCW UNDESA UNDP UNESCO UNHCR UNICEF UNIDO UNOCHA UNMISS VTC

Understanding Children’s Work programme United Nations Department of Economic and Social Affairs United Nations Development Programme United Nations Educational, Scientific and Cultural Organization United Nations High Commission for Refugees United Nations Children’s Fund United Nations International Development Organization United Nations Office for the Coordination of Humanitarian Affairs United Nations Mission in South Sudan vocational training centre

7

Preface UNESCO is implementing the strategy for Technical and Vocational Education and Training (TVET) adopted by the 181st session of its Executive Board (181 EX/Decision 8) in 2009. The strategy focuses on actions in three core areas: (i) provision of upstream policy advice and related capacity development; (ii) conceptual clarification of skills development and improvement of monitoring; and (iii) acting as a clearinghouse and informing the global TVET debate. The strategy is implemented through a range of advocacy, policy support and capacity development programmes and initiatives. UNESCO conducts TVET policy reviews as part of dialogues with concerned governments to identify options and strategies for improving TVET policies and systems. The reviews are led by the TVET Section at UNESCO Headquarters, in close coordination with regional and field offices. In addition, the UNESCO - UNEVOC International Centre for TVET plays an important role in delivering capacity building and support. Policy reviews aim to improve TVET policies and the TVET system in the reviewed country and to further local capacity to undertake strategic TVET policy analysis and planning that is aligned with sustainable development priorities.1 UNESCO’s work emphasises the need to ensure coherence between TVET and education policies, the economy, the labour market and social needs, and it promotes TVET policies based on the principles of inclusion and social cohesion, gender equality and sustainability. In 2014, the Government of South Sudan requested UNESCO to provide upstream policy advice to review national TVET policies. This report, developed by two external experts, George Afeti and Stefan Thomas provides the key findings of the policy review mission conducted in August 2014.

1 http://unesdoc.unesco.org/images/0018/001874/187487e.pdf

8

Acknowledgements UNESCO acknowledges the collaboration of officials from the South Sudan’s Ministry of Education, Science and Technology (MoEST), the Ministry of Labour, Public Service and Human Service Development, and the Ministry of Culture, Youth and Sports (MoCYS). Special thanks go to the Minister, the Deputy Minister, and the Undersecretary of the Ministry of Education for sharing their vision for the scientific and technological development of South Sudan, and the Directorate of TVET of MoEST for their cooperation during the mission. UNESCO also would like to thank the managers, directors, and head teachers of the technical and vocational education and training (TVET) centres and institutions visited for giving us valuable insights into the challenges of the TVET sector and making suggestions for revitalizing the sector. The mission would not have been successful without the active collaboration and support of the staff of the UNESCO office in Juba under the leadership of Mr. Salah Khaled. Ms. Carolyn Medel-Anonuevo coordinated the entire mission. The additional financial support was generously provided by the UK Department for International Development (DfID) and the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ). This was crucial in allowing UNESCO’s expert team to engage with the diverse stakeholders for two days. Finally, UNESCO acknowledges and thanks all the many international partners and agencies present in South Sudan whose reports UNESCO has consulted.

9

Executive Summary This review of the technical and vocational education and training (TVET) landscape in South Sudan sought to assess and evaluate the overall technical and vocational skills development policy framework in the country in order to propose strategies and actions that would contribute to strengthening the TVET sector. The objective is to make the sector more responsive to the human resource and labour market needs of the country. Taking into account the national socio-economic context, the review focused on seven key thematic areas, based on UNESCO’s TVET policy review guidelines: a) overview of the TVET system b) governance issues and challenges c) financing of TVET d) access and participation e) quality arrangements f)

relevance, employability, and impact

g) assessment of the TVET knowledge and evidence base.

Key findings and observations South Sudan is facing important development challenges including political instability and inter-tribal conflicts, poor infrastructure, over-dependence on oil production, strong import dependence with virtually no manufacturing or commercial agricultural base or services sector, extremely low human capital, with one of the world’s lowest adult literacy levels (of about 27 per cent), high poverty levels, very weak health and sanitation indicators, and a large pastoralist, non-formal economy, with over 80 per cent of the population living in rural areas. Against this background, TVET is drawing increased attention from the government and international partners. TVET’s potential contribution to redressing the multiple development challenges is well recognized by national stakeholders. However, this policy review key message is that the TVET system in South Sudan needs sustained transformation and revitalization if it is to realize its enormous potential as a contributor to the country’s development. The UNESCO policy review team, in consultation with national stakeholders and international partners, concludes that the constraints highlighted below prevent the TVET system in South Sudan from meeting the growing demands. Poor infrastructure and institutional capacity: It is estimated that only about thirty of the sixty-two TVET-oriented public and private institutions that exist in the country are currently operational. At present, the exact number and location of these functioning TVET institutions and centres is difficult to ascertain because of the conflict situation in the country and the absence of a credible and centralized TVET data and information system. Vocational education is currently offered at only five public secondary technical/commercial/agricultural schools under the Ministry of Education, Science and Technology (MoEST). All five institutions are located in Wau or the capital Juba. Several other technical secondary schools are not in operation because of severe infrastructure damage to their facilities and the insecurity in parts of the country. Vocational training, on the other hand, is provided through a network of public vocational training centres (VTCs), operating under the Ministry of Labour, Public Service and Human Resources Development (MoLPSHRD) and a number of private providers, which are mainly non-governmental organizations (NGOs) and faith-based organizations. The VTCs offer both non-formal short courses (3–6 months) and long duration (formal) courses of up to two years. MoCYS also operates youth training centres which run unstructured informal basic occupational skills training courses (lasting between 1 week and 3 months) that target mainly unemployed individuals and internally displaced persons through some form of apprenticeship at the community level. Recently, the National Disarmament, Demobilization and Reintegration Commission (NDDRC) piloted a short-term vocational training programme (3 months) for about 290 ex-combatants to acquire basic occupational skills to facilitate their reinsertion into society.

10

Fragmentation and policy incoherence: At least ten different ministries are involved in TVET. There is no standardized TVET curriculum or standardized certification system in place. Consequently, the TVET system is not only fragmented but also lacks coherence. In an effort to improve the governance and efficiency of the system, MoEST and MoLPSHRD have developed, separately, two policy documents: the National Technical and Vocational Education and Training Strategy (MoEST, 2013b) and the South Sudan Vocational Training Policy (MoLPSHRD, 2008). Both documents are similar in policy direction, choices and strategies, differing only on the target learner groups. The MoEST policy document focuses mainly on formal TVET, while that of the MoLPSHRD addresses the concerns of both formal and non-formal TVET. These two policy documents are still in draft form and are not yet operational. Currently, therefore, there is no active policy and legal framework to guide and drive the development of TVET in the country. However, the existence of the two draft policy documents provides the basis and momentum for developing a single national TVET policy. Government funding for the TVET sector is inadequate: Government budgetary allocations only cover staff salaries. Increasing allocations to meet TVET expansion and quality needs are necessary. Furthermore, the sector is heavily dependent on foreign donor support. Designing and implementing sustainable financing mechanisms for the TVET sector is a huge challenge that needs to be addressed. Access to TVET is limited and inequitable: Regarding access to TVET and participation of all categories of learners, it was observed that some disciplines are often over-subscribed and many learners are often denied admission because of the low capacity of the better-performing TVET centres and institutions. These disciplines include auto mechanics, building and construction, and welding and metal fabrication. There is very little diversity in the programmes offered, which at present cover traditional crafts and trades. This further limits TVET responses to both social and economic demands. Female participation is significant in areas such as computer skills and tailoring, but much less so in the traditionally male-dominated disciplines, such as electricity and auto mechanics. Interestingly, faith-based organizations and NGOs do not have any age or academic barriers to their TVET programmes, a policy that deserves to be encouraged. The two developed policies do not explicitly reference the need to provide better access to training for out-of-school youths, particularly those who dropped out during or after primary school. Nor does either policy explicitly focus on poverty as a constraint to participating in TVET. The training needs of rural youths are acknowledged, but the policies do not explicitly state that there should be a special emphasis on training in rural and remote areas, and on increasing the supply of training in all regions of the country. Absence of a quality development framework: Assessment and examinations in the VTCs are conducted internally. There are no nationally agreed standards against which the practical skills proficiencies of trainees are benchmarked. Quality standards therefore vary from one institution to the other. No formal external or internal quality assurance mechanisms are in existence. Low relevance and cooperation with labour market: Currently, there is no employer or industry involvement in the development of the training curriculum. There is also no systematic institutional culture of conducting tracer studies to gather information on the destination of trainees in the labour market as a strategy to measure the relevance and of training programmes and the employability of their graduates. However, the little information obtained from some of the institutions suggests that most TVET graduates are easily absorbed into the workforce. Some trainees also benefit from the free provision of work tools and equipment to facilitate their entry into the world of work as selfemployed artisans or entrepreneurs. A key observation is that the employment market is characterized by a large presence of foreign workers and the limited size of the private sector. Lack of evidence base: In the absence of credible data and statistics on trainee enrolments, output and employment, it is difficult to evaluate the impact of the TVET system and its relevance to economic and social demands. There is no TVET management information system (MIS) or monitoring tool in place to inform decision-making in such areas as policy formulation, funding strategies, curriculum changes, system management and training relevance. The need for such a system is acknowledged, but it appears that the lack of relevant technical expertise and resources has so far prevented its development. Although there have been some efforts in the recent past to collect and analyse general education data and statistics, the need for a TVET specific MIS is a key challenge that needs to be addressed. Another key issue is the lack of a labour market information system (LMIS) to help align training with employment opportunities. Employment and labour market information and data are required for designing appropriate labour-responsive TVET programmes.

11

Policy recommendations Based on the key findings and observations, the following recommendations are proposed for consideration by the government:

Improving the coordination and governance of the TVET system 1. In the short term, an inter-ministerial task force should be constituted to coordinate TVET in South Sudan and drive the process of harmonizing the two existing TVET policy documents developed by MoEST and MoLPSHRD into a single national TVET policy. This should be one of the first priorities of the inter-ministerial task force. The outputs of the taskforce work should be (i) a unified policy and strategic framework, (ii) a programme-based approach, and (iii) an assessment of the costs of policy and related programmes and the implications for public financing and donor support. 2. Another recommended action point for the proposed task force is to ensure that TVET is clearly articulated in the national development strategies/plans and that key policy-makers are convinced about the importance of TVET for the development of the country. Creating closer links between TVET and other policy areas (such as agriculture, health, energy and infrastructure) is a crucial step. When other sectors are convinced of the added value that TVET brings to their own endeavours, additional funding, capacities and widened accountability and policies will follow.

Ensuring an effective and sustainable funding system 3. With increased value being placed on TVET as a central and cross-cutting element of education and development, it is clear that sector budgets will necessarily have to be adapted to reflect the new position of TVET and the demand on it. From discussion with national stakeholders, and taking into account international experience in this field, three broad options could be envisaged, discussed and decided upon: •

Increase the budget allocation: The TVET system is chronically underfunded. In the short term, given the economic situation, increasing budget allocation seems not to be affordable.

•

Rely further on international funding: The government is relying heavily on international support for upgrading and maintaining TVET institutions. This is not sustainable in the mid-term perspective as key donors are looking for greater government investment and long-term commitment.

•

Set-up a new source of funding: There is an agreement among the national stakeholders regarding the necessity of designing and implementing an effective and sustainable financing mechanism to mobilize domestic (public and private) funding for TVET. In view of the high incidence of poverty in the country and the poor prospect of mobilizing training levy contributions from a currently weak private sector, the government should consider alternative approaches. For example, the government adopted in 2012 a Petroleum Revenue Management Act, which establishes a formalized structure for distribution of petroleum revenues to immediate budgetary needs, savings and revenue stabilization, and direct transfers to petroleum-producing states and affected communities. The government could consider allocating a reasonable percentage of the country’s oil revenue to development of TVET. Over time other development sectors can also be expected to invest a greater proportion of their budgets in TVET.

Moving towards a more demand-driven approach: linking to growing sectors and rural development 4. Given the economic context in the country and the importance of rural areas, orienting TVET towards demands require analysis of diverse economic activities, running from subsistence activities (both farming and non-farming) through ‘traditional’ crafts and trades, to growing economic sectors such as infrastructure, hospitality and services, and other relevant and priority sectors identified by the government and national stakeholders.

12

5. The diversity of possibilities for improving established livelihoods and work opportunities and developing new ones demands extreme flexibility, imagination and resourcefulness. The government should pursue a strategy of private sector involvement, decentralization and capacity-nurturing at local levels that will permit skills development responses to local actual and potential patterns of livelihood, work and business opportunities in priority industry sectors such as agriculture, infrastructure and hospitality.

Expanding access and addressing marginalization 6. Balancing growth and quality is a major policy aspect that the government should address. In particular, there is a balance that needs to be set between devoting resources to increased access to TVET programmes and using the same resources to improve the quality of programmes. In the short term it may be necessary to assess the current situation of all the sixty-two TVET establishments in the country with a view to rendering them operational as a strategy to expand access to TVET in the country. In this regard, an updated mapping or situational analysis of the TVET institutional landscape will be necessary. The mapping should lead to an upgrading plan linked with labour market and individual demands, with a focus on priority sectors (such as agriculture, energy, construction and services) and local needs (such as the value chain of agriculture products, and rural development). 7. Addressing skills development programmes for the geographically, economically, socially and physically marginalized should be central to policy development. A clear strategy is needed to promote the acquisition of foundation and employability skills and the participation of the most vulnerable groups in the South Sudanese society. Among these are girls and women, pastoralist communities, rural youth and excombatants, especially in the agricultural sector. The special skills needs of persons with disabilities (PWDs) also deserve attention. As a post-conflict country, South Sudan’s TVET programmes for all categories of learners should include instruction in peace education, conflict prevention, citizenship and participation in the democratic space of the country. Training should also include modules on life skills, entrepreneurship and financial literacy, and also on literacy and numeracy which are key elements for development. 8. Rural TVET programmes face particular operational problems, such as access to facilities, materials and trained teachers. These problems can only be tackled effectively through better partnership, collaboration and coordination between provincial and local levels. The organization and delivery of such training should combine training in TVET institutions with community-based initiatives. Information and communications technology (ICT) and mobile learning can expand access to a certain extent. Given the illiteracy rates among the youth and adult populations, combinations of livelihood skills training and literacy education should be considered. The means and feasibility of funding these initiatives in partnership with NGOs and private actors should be looked at closely. 9. The participation of women at all levels of education is low. The elimination of gender disparities remains a challenge at all levels, and this should be a priority in TVET. There is thus a need for the government to implement interventions with a view to eliminating gender discrimination in both government and nongovernment training programmes, to support enrolment in TVET trades with better prospects in the labour market. These interventions should include awareness-raising programmes and facilitation of gendermainstreaming efforts in TVET. 10. Furthermore, rather than providing training themselves, the concerned ministries can focus on creating an enabling environment for TVET and skills development by (i) providing a clear policy framework of regulations and incentives for training providers including NGOs, private investors and communities; (ii) supporting actions to improve the quality and relevance of TVET and skills development programmes through curriculum and training package development, trainer training and skills assessment; and (iii) providing relevant and reliable information to help prospective learners or job-seekers make informed choices.

Adopting an incremental approach for quality development 11. The implementation of a fully functional outcome-based TVET delivery system in South Sudan appears unrealistic for now, in view of the costs, technical expertise and strong industry involvement required for implementing such a training methodology. In the short to medium term, a stronger curriculum focus on

13

practical skills training, the participation of employers in training delivery, and a more rigorous examination and practical skills assessment with proficiency testing as proof of competence may be considered as an interim alternative to a fully outcome-based or competency-based training methodology. 12. To increase the relevance and employability of trainees and ease their transition into the world of work, an integrated approach to job placement is necessary. This should involve advice on jobs and training opportunities, procedures for starting or doing business, and micro-finance interventions. This requires the establishment of a supporting system that can provide these additional services as well as the mobilization of other stakeholders beyond the ministries concerned, including micro-credit associations, banks and other actors. Another key element of such an integrated approach is an LMIS which will not only help align training opportunities with job opportunities but also provide useful information on the skills gaps and shortages in the human resource base of the country. 13. The undertrained teaching body and the lack of appropriate teaching materials hinder qualitative improvements to TVET system. The recruitment and retention of well-qualified and competent teachers should be prioritized. Clearly, teachers have a central role in strengthening TVET system capacities to undertake successful TVET strategies. Government policy and strategies should be concerned with all staff contributing to TVET teachers, instructors, trainers and tutors whether they work in schools, training centres, community initiatives or enterprises. 

Better meshing the general secondary system and TVET 14. Taking into account the present and near-future performance of secondary education, bringing it closer to the world of work can contribute to creating an education system that is more sensitive to different learners’ contexts and futures. At present, many young people enter the labour market unprepared, making them more vulnerable to demographic and demand changes affecting that market. In this context, the government might consider the following actions: (i) Connect general secondary education with the world of work through developing in learners the capacity to solve problems; communication, interpersonal and entrepreneurial capabilities; and other skills they need to be able to adapt to different work environments and thereby improve their chances of accessing gainful employment; (ii) Support more substantive careers guidance, which could be progressively developed at different points of the education system; (iii) Implement and evaluate a few pilot schemes integrating forms of vocationalization of general secondary education, to make it possible to learn from experience and build adequate policies.

Reinforcing monitoring, evaluation and information systems 15. The monitoring and evaluation capacity of both TVET providers and supervisory bodies needs to be strengthened. In the short term, adopting a simple set of indicators to monitor the TVET system should be considered. In the long term, more sophisticated approaches supported by TVET MIS and LMIS should be envisaged. 16. Progress should be also made in registering and ensuring the quality of TVET institutions both public and private. Registration requirements provide a policy lever for upgrading TVET institutions and improving the quality and relevance of their provision. In the short term, registration should be simple and based on minimum information. In the long term, registration requirements should be shifted from input requirements such as courses, teachers and infrastructures, to output requirements, namely learning outcomes and labour market outcomes. These can be measured in multiple ways, including placements, wages and levels of selfemployment.

14

1.

The National Socioeconomic Context

South Sudan declared its independence from Sudan and became a sovereign state on 9 July 2011. A few days after its independence, the Republic of South Sudan was accepted as the 193rd member of the United Nations, and in October 2011 it became the 194th Member State of UNESCO. After decades of civil war, the government undoubtedly faces severe social and economic challenges. Three years following independence, the new state still lacks fully functional governmental and administrative institutions, education and health services, food and infrastructure. South Sudan will have to be built largely from scratch. South Sudan has an estimated population of around 10.3 million in 2012, with about 560,000 persons living in the capital, Juba. The country is divided into ten states: Jonglei (estimated population according to the 2008 census: 1,359,000), Central Equatoria (1,104,000), Warrap (973,000), Upper Nile (964,000), Eastern Equatoria (906,000), Northern Bahr el-Ghazal (721,000), Lakes (696,000), Western Equatoria (619,000), Unity (586,000), and Western Bahr el-Ghazal (333,000). South Sudan is a youthful country, with 47.8 per cent of the population under 15 years of age (South Sudan Statistical Year Book, 2011). Partly because of years of war and conflict, illiteracy rates are high. Only about 27 per cent of the adult population (15 years and older) are able to read and write. The situation is slightly better for youth between 15 and 24, with 40 per cent having some level of literacy or education. Table 1: Literacy Rates Adult literacy rate (15 years and over)

27%

Male adult literacy rate

40%

Female adult literacy rate

16%

Literacy rate for population aged 15–24

40%

Male literacy rate (15–24)

55%

Female literacy rate (15–24)

28%

Urban adult literacy rate

53%

Rural adult literacy rate

22%

Source: South Sudan National Baseline Household Survey (2009).

Demographic growth is high in South Sudan, and the population is expected to increase quickly to reach 12 million in 2015 (see Figure 1), which will have implications for social services including education and training. Figure 1: Predicted Population Growth in South Sudan (in Millions) 14   12   10   8   6   4   2   0   2011  

2012  

2013  

2014  

2015  

2016  

2017  

2018  

2019  

Source: IMF (2014).

15

The official language of South Sudan is English, with Arabic being spoken widely by the population. There are an estimated 200 different ethnic groups, and 64 local languages are spoken. The most widely used of these are Dinka (2–3 million), Nuer, Shilluk, Zande, Bari, Ubangian and Otuho. South Sudan has a non-Islamic legal system and a bicameral parliament. As a result of the civil conflict, the term of the National Legislative Assembly (four years from July 2011) has been extended until 2017 or 2018. The current government is dominated by the Sudan People’s Liberation Movement (SPLM) (EIU, 2014, pp. 18–22). The recent conflict between the government and rebels led by former vice president Dr. Riek Machar has cast another shadow on the economic and social development of the country. According to the United Nations Office for the Coordination of Humanitarian Affairs (UNOCHA) in South Sudan, 1.7 million people have been displaced and around 4 million face alarming food insecurity as a result of the fighting that started in December 2013. Fifty-one per cent of the population live below the national poverty line (AfDB, 2014). The poverty profile (see Table 2) shows that most of the population is living in rural areas and that poverty affects rural areas more severely than urban ones. Table 2: Poverty Profile by Urban and Rural Areas Population as a share of South Sudan total (%)

 

Poor as share of South Sudan population (%)

South Sudan

100

100

Urban

15.6

7.5

Rural

84.4

92.5

Source : South Sudan Statistical Yearbook 2011

In its recent African Economic Outlook paper on South Sudan, the African Development Bank (AfDB) identified six major challenges for the country (2014, p. 2): •

political instability and inter-tribal conflicts

•

poor infrastructure

•

over-dependence on oil production

•

strong import dependence with virtually no manufacturing or commercial agricultural base or services sector

•

extremely low human capital, with one of the world’s lowest adult literacy levels (of about 27 per cent), high poverty levels, very weak health and sanitation indicators

•

a large pastoralist, non-formal economy, with over 80  per cent of the population living in rural areas (compared with around 60 per cent in sub-Saharan Africa).

In South Sudan, the provision of and access to health and nutrition services is extremely limited. In 2011, health expenditure as a share of gross domestic product (GDP) was only 1.6  per cent compared with 6.3  per cent in sub-Saharan Africa. The financial burden of illness, especially for the poor, is very high. According to the Human Development Report 2014 (UNDP, 2014), the infant mortality rate was 67 per 1,000 live births compared with 64 in sub-Saharan Africa (see Table 3).

16

Table 3: Selected Health Data from the Human Development Report 2014: South Sudan and sub-Saharan Africa Year

South Sudan

sub-Saharan Africa

Life expectancy at birth (years)

2013

55.3

56.8

Mortality rates for infants (per 1,000 live births)

2012

67

64

Mortality rates under age of 5 (per 1,000 live births)

2012

104

97

2008–12

31.1

37.8

2011

1.6

6.3

Child malnutrition; stunting (% under age of 5) Health expenditure (% of GDP) Source: UNDP (2014).

South Sudan has made progress in achieving universal primary education (Millennium Development Goal 2), but the goal will not be met by 2015 (AfDB, 2014, p. 9). The very long history of instability and conflict has inevitably affected the provision of social services and the quality of human resources. The country’s institutional capacity and public spending are inadequate to achieve increasing participation at other levels of the education system, improving the quality of education at all levels and the health of the population. Furthermore, it is estimated that about 70 per cent of social services in the country are delivered by NGOs, which the government has little or no capacity to regulate (AfDB, 2014, p. 9).

1.1 The economic context The South Sudan government budget is currently entirely dependent on revenue from oil. According to the budget for the fiscal year 2012/13, oil revenue accounted for 98 per cent of government income excluding aid2 and 71 per cent of GDP. According to the World Bank (2013), the South Sudanese non-oil economy is extremely underdeveloped, which contributes to the poor living standards and growing youth unemployment. The reliance on oil has distorted the economy, and is also associated with poor governance, pervasive corruption, and weak institutional and human capacity. The current gross national income (GNI) per capita is estimated at US$1,450 (see Table 4). Table 4: Selected Economic Data from the Human Development Report 2014: South Sudan and sub-Saharan Africa. Year

South Sudan

sub-Saharan Africa

GDP (2011 PPP $ billion)

2012

19.4

2,797.2

GNI per capita (2011 PPP $)

2013

1,450

3,152

Share of agriculture, hunting, forestry and fisheries (% of GDP)

2012

9.7

18.4

International trade (% of GDP)

2012

94.2

76.9

Health expenditure (% of GDP)

2011

1.6

6.3

Source: UNDP (2014).

The current conflict is likely to delay South Sudan’s further plans to organize an oil licensing round and to sell mining concessions. As a direct result of the crisis, more money is being diverted to the army and the war effort.

2

In 2012, the main donors to the Republic of South Sudan (official development assistance – ODA, gross disbursement, in US$ million) were Canada (65.5), Denmark (38.5), Germany (34.3), Japan (75.5), Netherlands (45.2), Norway (73.6), Sweden (72.2), United Kingdom (173.2), United States (773.3), EU Institutions (46.9), Global Fund (44.6), UNHCR (17.3), UNICEF (7.9) and the World Food Programme (16.2). Source: OECD.

17

A full and lasting peace will need to be restored before South Sudan can make progress in the development of legal and regulatory frameworks for the economy and in attracting foreign investment. South Sudan is eligible for concessional lending from the International Monetary Fund (IMF). However, ongoing concerns about the lack of experience of the civil service, as well as mismanagement and corruption, may complicate access to funding. Improvements in monetary and fiscal policy will depend largely on technical assistance from international donors, particularly the IMF and the World Bank (EIU, 2014, pp. 6–9). A strong rebound during the first half of the fiscal year 2013/14 seemed possible, but recent unrest has cast a shadow over the prospects for economic recovery and development. Based on the existing oil production profile and expected growth in non-oil sectors, such as agriculture, construction and services, the GDP percentage change was expected to reach 40 per cent by the end of the financial year (FY) 2013/14, following two years of strong economic contraction (after independence in 2011). However, the recent civil strife cast a shadow over the prospects for economic recovery and development. Oil production and associated investments remain key drivers of growth, but the civil strife has seen the production of oil cut in half. In the medium term however, if the civil war that started in December 2013 is resolved and order and security are restored, South Sudan has the potential to grow its GDP by as much as 7 or 8 per cent per year (see Figure 2). Figure 2: Annual GDP Growth Rate Forecast

20   18   16   14   12   10   8   6   4   2   0   2014  

2015  

2016  

2017  

2018  

2019  

Source: IMF (2014).

South Sudan has not yet been able to build up a significant private sector. The formal and informal private sectors are characterized by relatively small and young firms. There are a total of 7,209 formal businesses in the ten state capitals of Southern Sudan, of which 84 per cent are shops or hotels and restaurants. Torit had the least with 244, and Juba the most with 2,652 (South Sudan Business Survey,2010). The majority of the firms are engaged in the wholesale and retail trades (see Table 5). Informal businesses are usually characterized by multiple activities, which makes it difficult to classify and categorize them. Manufacturing and agro-processing firms constitute only 2.7  per cent of the total number of businesses in the country. Almost all products are imported from the neighbouring states of Kenya, Ethiopia and Uganda. The initial plans of the government to concentrate on promoting agriculture and building up a processing industry have been frustrated by the ongoing conflicts. The decades of fighting that have forced people to leave their land and their homes mean that a lot of basic agricultural knowledge has been lost. A large proportion of farmland is unusable because it has been, or is thought to have been, mined.

18

Table 5: Characteristics of the Formal and Informal Private Sectors in South Sudan The formal private sector characteristics • Most businesses (90%) are less than 5 years old. • Most firms (over 85%) rely on internal resources. On average, they use the owners’ savings to provide 80% of their start-up capital. • Most (90%) employed fewer than 20 people. • Most (70%) were engaged in the wholesale and retail trade. Manufacturing and agro-processing firms only constituted 2.7% of the total number of businesses in the country. The informal private sector characteristics • Many are entrepreneurial in character. • Most businesses are operated by their owners. • Most are permanent establishments, not temporary or transitional entities. • Most informal businesses carry out multiple activities, making it difficult for local authorities to classify and categorize them for the purposes of issuing appropriate local licences. • Most avoid paying licence fees. They report that when they are caught by the authorities they receive demands for informal payments or bribes. • There is a rough dichotomy between survivalist enterprises whose owners are content with the status quo that provides them with a living, and entrepreneurs who wish to expand their operations but face constraints including lack of access to finance. It is therefore important for policy-makers to disaggregate the informal sector in order to design policies which will foster growth and formalization. • Many informal businesses lack sufficient information on formalization. Survivalist businesses especially often have little or no conception of regulatory requirements beyond the basic trading licence. Source: AfDB (2013, pp.15–16).

Developing domestic production and exports in the non-oil sectors is important for South Sudan’s drive for industrialization, yet its participation in global value chains is still in the very early stages. South Sudan has enormous potential in sectors such as mining, agriculture, forestry, livestock, fisheries and energy, but supply capacity remains severely constrained (AfDB, 2014, p. 10). The discussions on economic development policies are focused on the need for balanced growth and the strengthening of the non-oil sectors, which are crucial to achieving sustainable and inclusive growth. In this context, the agricultural sector is expected to play a crucial role for additional growth. This would not only allow the economy to diversify away from oil dependence in the medium and long term, but also reduce poverty and food insecurity. South Sudan’s agriculture is based on livestock and a wide range of crops such as grains, fruits, vegetables, coffee and tea. However, agricultural production has remained far below its potential, and the region has been a net importer of agricultural products in the past. In order to improve agricultural production, the productivity of farms will have to increase significantly. That means better transport infrastructure, agricultural technology and support services, including financing and availability of relevant skills. In the past, agricultural production has also been constrained by insecurity in many rural areas as well as by the increasing rural–urban migration of young people. The 2014 edition of the World Bank’s report on the business environment, Doing Business 2014, gives South Sudan a world ranking of 186, down from 184 in 2013. As the World Bank review shows (see Table 6), the private sector in South Sudan is negatively affected by multiple factors including the excessively complicated administrative procedures involved in starting a business, cumbersome licensing procedures for construction, access to credit, and taxation. The comparison between the results for 2013 and 2014 shows that the international ranking of South Sudan is not improving, and is worsening in many areas, in particular taxation and access to construction permits. This situation makes it impossible for a competitive private sector to emerge in South Sudan and for the country to diversify its economy. If it is to climb up to the ranking of countries that provide a truly attractive business environment, South Sudan must tackle the challenge of transforming the rules, the habits and the behaviour that undermine economic activity.

19

Table 6: World Bank Ease of Doing Business Rankings in 2013 and 2014 for South Sudan Indicator

DB 2014 Rank

DB 2013 Rank

Starting a business

140

135

-5

Dealing with construction permits

171

162

-9

Getting electricity

184

178

-6

Registering property

183

180

-3

Getting credit

180

177

-3

Protecting investors

182

182

No change

92

67

-25

187

187

No change

87

88

-1

189

189

No change

Paying taxes Trading across borders Enforcing contracts Resolving insolvency

Change in ranking

Source: World Bank (2014).

South Sudan has virtually no infrastructure, and is lagging behind its neighbours and other least developed countries (LDCs) (see Table 7). The country has practically no energy supply, water/sanitation, telecommunications or transport networks. Following its declaration of independence, however, the government of South Sudan has drawn up a comprehensive development plan over a 3-year period with the support of the donor community. The overall development objectives are improving governance, deepening peace-building and improving security, improving and expanding education and health services, and achieving rapid rural transformation to improve livelihoods and expand employment opportunities (Government of South Sudan, 2011). The specific objectives include boosting agricultural production and the road and energy infrastructure. Apart from the agricultural sector, therefore, there is a huge potential for growth in infrastructure improvement projects, particularly in the telecommunication, construction, energy and services sectors, as soon as the government starts again to invest its oil revenues in the build-up of the country (World Bank, 2013, p. 9). Table 7: Selected Indicators for Infrastructure Services for Selected LDCs.

Road network paved (%)

Access to electricity (% of population)

Access to improved water (% of population)

Access to improved sanitation (% of population)

Telephone subscribers per 100 people

4.2

10.2

76.3

12.6

7.7

Burundi

10.4

2.1

72.5

41.4

2.9

Malawi

45.0

7.5

81.6

59.2

6.1

Niger

20.6

..

51.2

8.1

..

Rwanda

19.0

5.4

64.8

22.6

3.5

2.0

1.0

27

16

..

Country

Burkina Faso

South Sudan Source: AfDB (2012b).

South Sudan’s budgetary position will continue to be determined largely by oil revenues and international aid in the longer term. If and when a sustainable peace is restored and exports resume reliably, South Sudan will probably continue to focus on infrastructure development and agriculture, as well as attempts to improve human resource development indicators. Should export performance remain weak, the authorities are likely to target increased taxes on selected consumer goods, the maintenance of tight controls on the public sector payroll, and the sale of oil and mining concessions (EIU, 2014, pp. 6–9).

20

The business outlook for South Sudan remains uncertain, and business losses to date are unlikely to be recoverable. Investment in construction, manufacturing, consumer goods, energy, telecommunications and the hospitality sector is almost entirely centred on Juba, and led by foreign companies, mostly from Kenya, Uganda, Ethiopia and South Africa. Kenyan companies have reported significant losses since the outbreak of fighting. In the longer term, official ambitions to diversify the economy by developing sectors such as tourism are unlikely to have a substantial impact within the next five to ten years. Provided that peace is restored, it can be expected that the economy of South Sudan will be boosted by increased grants and foreign investment, although donors’ serious concerns about corruption and violence could act as a limiting factor. Peace both domestically and with Sudan is crucial if South Sudan is to realize its economic potential (EIU, 2014, pp. 6–9). Indeed, at an investment conference held in Juba in November 2013, one month prior to the eruption of the current conflict, more than 500 chief executives from international firms who participated in the conference did pledge to invest massively in the country. The AfDB proposes a three-step approach to improve the integration of South Sudan’s economy into regional and global value chains. These steps will require adequate skills development measures (see Box 1). Box 1: Regional and Global Value Chains, Industrialization and Skills in South Sudan ‘South Sudan needs to focus on global value chains that are of high value but requiring a low skill set, and not dependent on having a well-developed road and transport infrastructure. For example, gum arabic and shea nut trees are available in 7 of the 10 states. Hides and skins too are available in all the 10 states. South Sudan could usefully invest in a nationwide process to prioritize and develop 4 to 5 value chains that pass this test and create jobs. Second, South Sudan needs to embrace regional economic co-operation to ‘import’ skills and allow itself to move up the value chain. As a producer, South Sudan will have to focus at the bottom of the chain in the short term. In the medium term, South Sudan will climb the chain and ‘import’ skills in the form of economic cooperation to quicken this transition. The development of national value chains, especially for food, will be critical. Regional value chains will dominate global ones, as the county strengthens its ties within the region. In this context, South Sudan will, as a general principle, need to prioritize its national, regional and global engagement in that order. Third, barriers that inhibit participation in global value chains have to be addressed in the medium to long term even within the context of conflict. The efforts to improve road infrastructure, capacity of institutions and security of persons and property will need to be revived quickly. These are binding in most parts of the country. Additional barriers such as the relative absence of a private sector and general low levels of skills and literacy (e.g. only 27% are literate) will have to be addressed too.’ Source: AfDB (2014, p. 11.)

1.2 The labour market In 2011, the Understanding Children’s Work (UCW) programme published an in-depth survey of the labour market in South Sudan. The report assessed labour market conditions and highlighted a number of key challenges faced by the new country in ensuring adequate livelihood opportunities for its population. To date, the UCW survey has provided the most detailed insight into South Sudan’s labour market. A labour market survey by the World Bank is under way but had not been released for official use at the time this report was prepared. According to the UN Department of Economic and Social Affairs (UNDESA) (see Figure 3), the number of new entrants to the labour market in South Sudan is estimated to increase dramatically to reach 300,000 in 2020. The difficulties youth encounter in entering the workforce and developing the skills needed to ensure gainful and productive employment can have profound effects on national investment climates, economic growth and sustainable development prospects. Policies need to ensure that demand will offset these pressures and allow the market to absorb these new cohorts into productive employment.

21

Figure 3: New Entrants (Age 15-24) to the Labour Market in South Sudan (in Thousands)

500   450   400   350   300   250   200   150   100   50   0   2000  

2005  

2010  

2020  

2030  

2050  

Source: UNDESA (2013).

According to the UCW report (2011, pp. 7–15), the labour market in South Sudan is characterized by the following key features and challenges: „„ Very high rates of child labour, low levels of education participation (even for the 10–14 and 15–24 years age cohorts) and high rates of youth unemployment. A very large share of the active population is found in non-wage, low-productivity employment concentrated in the agriculture sector; „„ 75 per cent of the working-age population (aged 15–64 years) is economically active. A significant share of the active population (12.6 per cent) are without jobs. Among the inactive population, about 25 per cent are in education, but an even larger share is comprised of discouraged workers (31 per cent). The remaining inactive persons are neither in education nor interested in employment. Females predominate in this latter group; „„ Levels of unemployment are higher for young people and for persons from poor families. Labour force participation is higher in rural areas than in urban ones across almost the whole 15–64 years age spectrum, owing largely to the impact of labour-intensive agriculture in absorbing the rural work force. Male participation in the labour force is generally higher than that of females, although this is not the case among young (15–24-year-old) persons; „„ The differences between states in labour force participation and status are large. The results underscore the importance of state-specific approaches in dealing with this issue. The unemployment rate varies from 21 per cent in Jonglei to just 5 per cent in Eastern Equatoria. Labour market participation ranges from 84 per cent in Eastern Equatoria to 70 per cent in Central and Western Equatoria; „„ Employment is characterized by low-productivity, unremunerated work concentrated in the agriculture sector. About 84 per cent of those employed are in non-waged work, for their family (43 per cent), for others (5 per cent) or on their own account (37 per cent). The agriculture sector accounts for 63 per cent of total employment. Only a small minority of workers enjoy formal salaried employment (13 per cent) or employment in the tertiary sector (19 per cent). These patterns are predominant among rural dwellers (90 per cent are in non-waged work, 69 per cent are in agriculture, and 67 per cent fall into both these categories) and the poor (93 per cent are in non-waged work and 75 per cent in agriculture). The composition of employment varies between states. However, non-waged work and the agriculture sector predominate in all of them. The share of those in non-waged work ranges from 9 per cent in Eastern Equatoria to 61 per cent in Western Bahar El Ghazal, and of those in agriculture from 77 per cent in Western Equatoria to 47 per cent in Western Bahar El Ghazal; „„ About 75 per cent of those actively seeking work are doing so for the first time. It is likely that the high proportion of first-time job seekers is in part the reflection of returning internally displaced persons, and to a lesser extent ex-combatants entering the labour market. Unemployment rates differ between urban and rural areas. Differences in unemployment by gender are relatively small;

22

„„ The labour force is characterized by extremely low levels of human capital. This highlights the consequent importance of literacy, skills training and other forms of education and training, particularly for young workers. Almost 90 per cent of workers are without any qualification, while less than 2 per cent possess post-secondary qualifications. Education levels are higher among urban residents, among males and among the wealthy. Education levels also vary by state, but even in the best-performing state in terms of educational attainment – Central Equatoria – two-thirds of the active population have not completed primary education; „„ The small proportion of workers with education face a smaller risk of unemployment and are much more likely to secure formal, salaried employment than the uneducated. In terms of employment status, even a small amount of education appears to make a difference: salaried employment is 22 percentage points higher for those with primary education than for those with no education. In its ‘Thematic analysis: promoting youth employment’ 2012 in South Sudan, the AfDB points out that among the factors contributing to youth unemployment, skills mismatches with available jobs are viewed as particularly serious. Obviously, youth applicants lack experience or proper qualifications as most have attended private education institutions in major cities that lack credible, internationally renowned accreditation. Very often, qualifications are also not in line with the economic priorities of the government, such as skills for the energy and construction sectors. This situation underscores the need to develop a human resource development strategy delineating the areas of priority for both the public and private sectors. In the absence of coherent government policies and a legal and regulatory labour framework, the few foreignowned private enterprises tend to bring skilled workers from their countries of origin, typically Kenya, Uganda, Ethiopia and Eritrea. Only a handful of South Sudanese are hired, usually as drivers, waiters, loaders, sweepers or cashiers. According to the AfDB, many employers both national and foreign complain that the youth attitude to work is very poor. From the employers’ point of view, local youth seek much higher wages than are merited by the level of productivity they are able to achieve. Furthermore, many job seekers see themselves as the equals of the better-organized, more experienced and better-paid youth from neighbouring countries (AfDB, 2012a, pp. 9–10). Cultural perceptions of what constitute decent jobs (for instance, the poor perception of manual work by pastoralist communities) may influence the employment choices of young people. Many young South Sudanese, who were taught in Arabic when South Sudan was part of the Sudan, lack proficiency in the English language, and this is also a challenge to their employment prospects with international firms in the country.

1.3 Demand for skills from the productive sector and rural development Government policy recognizes the importance of the private sector in developing the country. One of the government’s main objectives, as stated in the South Sudan Development Plan 2011–2013 (Government of South Sudan, 2011) is to diversify the economy and double the amount of non-oil revenue by creating a more conducive business environment for the private sector. Given the stage of development of the country, the government plans focus on developing the infrastructure for transport, ICT and telecommunications, agriculture and energy. In addition to the skills required to improve this infrastructure, there are targets to diversify the economy. However, the current relatively narrow industrial base means that the demand for highly skilled workers and technicians is modest. This gives South Sudan an opportunity to work gradually on boosting the quality of TVET as the demand for high skills grows. With around 84 per cent of the population living in rural areas, rural development is a vitally important policy area. Both farming and non-farming activities will remain crucial for economic diversification in rural communities. The strengthening of TVET for rural development should therefore be a priority for policy-makers.

23

1.4 Conclusion The socio-economic and demographic factors and labour force characteristics presented above have a direct impact on education and training policies. South Sudan is facing a dramatic expansion of its labour force, with large cohorts of youth joining the labour market. Whether this sizeable young labour force will be a blessing or a burden will depend to a large extent on the capacity of the economy to create decent work, and at the capacity of decisionmakers to provide opportunities to youth and adults to develop skills that will be rewarded in the labour market and that will support further learning. One fundamental principle is the need to ensure that the TVET system is closely linked to the national economic development agenda and phases. It is also important to consider whether sufficient attention is being paid to those who lack basic skills and live in rural areas. There are policy decisions and choices to be made. To achieve this, different components of public policies should be brought together in an integrated manner, including agriculture and energy development, education and training, employment and social protection.

24

2.

The Characteristics of the TVET System

2.1 The education system In South Sudan, TVET is provided in formal, non-formal and informal settings, and it aims to equip youth and adults with the qualifications needed to meet the economic and social development challenges of the country. The characteristics of the TVET subsector can be discussed in the context of the wider formal education system (see Figure 4). Figure 4: The Formal Education System of South Sudan

University/College education

In-service teacher training

Pre-service teacher training

Secondary school Senior 1 (S1) to Senior 4 (S4)

Vocational/technical education and training (includes technical secondary education)

Primary school Primary 1 (P1) to Primary 8 (P8)

Pre-primary school Beginner to Graduate Source: MoEST (2014).

The education sector has seen a substantial growth over the past decade or so. Between 2000 and 2009, primary school enrolments increased from around 0.3 million to around 1.4 million. Over the same period, the primary school gross enrolment rate rose from 21 per cent in 2000 to 72 per cent in 2009. Over aged students, repetition and dropping-out are widespread in primary education. Only around 26 per cent of the students complete grade 6 of the primary education cycle. Official data for secondary education are less complete, but enrolments at this level have at least doubled since 2005 (World Bank, 2012, pp. 1–3). Dropout rates at the secondary school level also appear to be very high. According to the 2013 educational management information system (EMIS) data, only 2,563 students reached the final (fourth) year of the secondary school programme out of an intake of 19,077 in the first year. The low capacity at the secondary school level coupled with the high dropout rates underscore the need to expand or operationalize the existing facilities for TVET in order to address, at least partially, the skills needs of the large numbers of students who drop out of the general education system.

25

Table 8: Secondary School Completers and Completion Rate by State and Gender, 2009 All State

Comp.

South Sudan Upper Nile

Male Comp. rate

Comp.

Female Comp. rate

Comp.

Comp. rate

3.230

1.9%

2.492

2.80%

738

0.9%

197

1.0%

174

1.50%

23

0.3%

40

0.1%

36

0.20%

4

0.0%

Unity

125

1.1%

101

1.70%

24

0.4%

Warrap

103

0.5%

93

1.00%

10

0.1%

–

–

–

–

–

–

414

6.8%

356

10.80%

58

2.1%

Jonglei

Northern Bahr El Ghazal Western Bahr El Ghazal

218

1.5%

211

2.80%

7

0.1%

1.382

5.5%

934

7.20%

448

3.7%

Central Equatoria

310

1.3%

244

1.90%

66

0.5%

Eastern Equatoria

441

3.5%

343

5.30%

98

1.6%

Lakes Western Equatoria

Source: EMIS Report 2010, MoEI

Gender inequalities are widespread in the education system. The gender gap is wider in secondary and higher education than in primary. In 2009, girls made up 37 per cent of total enrolments in primary schools, 27 per cent in secondary schools, and 24 per cent in higher education. Furthermore, young women comprised 24 per cent of these studying in teacher training institutes (World Bank, 2012, p. 54). Wide disparities in the chances that a child will ever enrol in primary school can also be found between urban and rural children as well as rich and poor children. The two most important reasons provided for nonattendance are cost of schooling and distance to school. For urban children, the main reason for non-attendance is the cost of schooling. For rural children, the main reason is distance to school (World Bank, 2012, pp. 51–4). In the 15–40 age group, an estimated 2.2 million (out of a total of about 3.2 million) are non-literate and could benefit from literacy training. Although literacy rates have improved over time, most non-literate individuals are at the younger end of this age group because of South Sudan’s strong population growth and young population (World Bank, 2012, p. 60).

2.2 The provision of TVET in South Sudan The study of technologies and related sciences and the acquisition of practical skills, attitudes and knowledge relating to occupations in various sectors of economic and social life are organized by a broad range of providers: „„ Vocational education is currently offered at five public secondary technical schools under MoEST: technical secondary schools in Juba and Wau, commercial secondary schools in Juba and Wau, and an agricultural secondary school in Wau. Several other schools are not operational as a result of severe damage and the conflict situation in the country. According to the Directorate of TVET at MoEST, on the average only about 400 students are enrolled in the TVET stream every year out of a total secondary educational intake of about 18,000; „„ Vocational training is provided through a network of five public VTCs, operating under the aegis of MoLPSHRD. The VTCs offer both short (3–6 months) and long-term (up to 2 years) courses. These courses target mainly unemployed individuals, returnees and internally displaced persons; „„ A short-term (3 months) vocational training programme for ex-combatants was piloted in mid-2013 by the National Disarmament, Demobilization and Reintegration Commission (NDDRC) and UNESCO. The first group of 292 people were trained in Mapel, Western Bahr el Ghazal State before the beginning of the crisis in December 2013. The overall plan was initially to train 150,000 ex-combatants in ten centres nationwide. The programme was funded mainly by the German Ministry for Economic Cooperation and Development (BMZ) and the UN Mission in South Sudan (UNMISS);

26

„„ TVET programmes and courses of different natures (informal, non-formal and formal) are also offered by several other ministries, including MoCYS (which is currently operating three youth training centres in Juba, Wau and Malakal), the Ministry of Agriculture, the Ministry of Health, the Ministry of Industry, the Ministry of Petroleum and Mining, and the Ministry of Transport and Bridges. Numerous NGOs are implementing or plan to implement different kinds of TVET programmes (informal, non-formal and formal in basic occupational skills training), among them Norwegian People Aid, the Norwegian Refugee Council, Plan International, and Women for Women International. It is important to put a key focus on analysing the strengths and weaknesses, and also the successes and failures, of these different initiatives. This analysis needs to be done by both NGOs and at the ministerial level, and this is seen as a necessary step to effectively and efficiently plan future TVET initiatives.

2.3 Public–private partnerships in TVET There are no formal partnerships between training providers and local industry in the provision of TVET. The only types of partnership are those involving NGO and church-based TVET providers and their external donor partners, who provide considerable funding for physical infrastructure development and the procurement of training facilities. A typical example is the St Vincent de Paul VTC on the outskirts of Juba, which is funded by the St Vincent de Paul missionary society. A problem with an over-reliance on external partners is that the institution might have to close should the partner withdraw its support. This is a risk which needs to be managed.

2.4 Workplace learning and apprenticeship Traditional apprenticeships a mode of delivery for vocational training that is common in many other African countries are rare in South Sudan. Unofficial apprenticeships occur in the fields of carpentry, metalwork and vehicle mechanics. However, these are usually spontaneous individual efforts by entrepreneurs who have been trained by NGOs. Policy considerations should extend to making workplaces effective learning environments. It is also necessary to consider the kinds, duration and sequencing of work-based learning in training programmes. Work-based learning needs to be legitimized and understood more fully, its potential contributions elaborated in greater detail, and the means by which it can be effectively enacted more solidly informed. For example, in its recent Creative Economy Report (2013), UNESCO emphasizes the great potential that apprenticeships in the cultural and creative sectors have for human development.

2.5 Conclusion The TVET system currently suffers from low capacity in many areas, including system management capacity. Specifically, the capacity of the TVET system has been reduced by the closure of the majority of the sixty-two public and private TVET centres in the country. There is a need therefore to put in place strategies not only to reopen these institutions but to increase the access and participation especially of rural dwellers. It is also necessary to strengthen the provision in relation to labour market needs, planned infrastructure and agricultural development programmes. South Sudan is now beginning to feel the effects of its success at increasing enrolment at the primary level, with a growing demand for secondary and higher education.3 According to MoEST officials, there are plans to establish a number of polytechnics in the future, but without support from international donors this is very unlikely to happen anytime soon. A critical analysis should be conducted to discover the impact and sustainability of such an initiative.

3

See also Chapter 1: National socioeconomic context

27

3.

Governance of the TVET System

The TVET system in South Sudan is fragmented and lacks coherence. At least ten ministries and various NGOs and faith-based organizations are involved in technical and vocational skills development of various kinds. Currently there is no legal framework with adequate mechanisms for regulation of the programmes and courses offered by the different government ministries and the NGOs. NGOs and faith-based providers dominate the TVET landscape in terms of number of institutions. In all, about 80–90 per cent of TVET provision takes place in establishments owned or managed by NGOs and church-based organizations. There is practically no structured dialogue or collaboration between the three main line ministries involved in TVET. There is no standardized curriculum for the different disciplines, no standardized quality assurance system, and no standardized certification regime. As a consequence, there are gaps and inefficiencies in the management of the overall TVET system. In principle, MoLPSHRD issues certificates to trainees of the VTCs based on an internal assessment conducted by the VTCs themselves, with no external involvement. In the absence of any national standards against which trainee proficiency can be benchmarked, it is not likely that the certificates issued will reflect consistent levels of proficiency attained across the VTC network. In South Sudan, the management of public or state-owned TVET institutions is highly centralized. The institutions have limited decision-making autonomy in many areas of their operations, including staff recruitment and compensation. MoEST, MoLPSHRD and MoCYS (or their directorates for vocational training) prescribe and oversee the management of the institutions they control, including teacher/instructor postings, transfers, promotions and salary payments. On the other hand, the governance of VTCs run by NGOs and faith-based organizations is guided by the policies and regulations prescribed by their owners or the organizations that established or funded them. The different governance structures translate into multiple and often incoherent training and certification standards.

3.1 Policy trends and legal framework One other major weakness of the TVET system in the country, apart from the lack of coherence, is the absence of a unified policy and legal framework. It is in this context that MoEST and MoLPSHRD developed, independently, two separate TVET policy documents to address the policy and governance challenges. Although MoCYS’s Youth Policy also makes reference to vocational training for youth, there are only two key documents that outline strategic objectives, guiding principles and policy measures for the future development and governance of the TVET system of South Sudan:4 „„ The MoEST National Technical and Vocational Education and Training Strategy (3rd draft: MoEST, 2013b) aims at modernizing the TVET system by: • implementing a national TVET qualification framework • aligning the structure of vocational education and training to the standards of knowledge, skills and competencies set forth by the National TVET Qualification Framework • introducing quality assurance mechanisms • modularizing TVET programmes and offers • introducing occupational standards as well as occupational assessment and certification mechanisms

4

28

The MoCYS youth policy was not available at the time the mission took place.

• establishing a system for the recognition of prior learning • providing opportunities for cooperative TVET • strengthening apprenticeships • decentralizing the TVET system and reforming its main institutions (TVET council, central TVET authority, state TVET executive bodies) • introducing innovative financing mechanisms • promoting public–private partnerships in TVET • ensuring the development of human resources in the TVET system • improving monitoring and evaluation, including information on the labour market. „„ This document was developed with the support of an international consultant, who is located in MoEST and funded mainly by UNDP and the Inter-Governmental Authority on Development (IGAD). Although the document refers to the need for a diversified provision of TVET in the country, it focuses mainly on the formal TVET system and lacks a profound analysis of the situation in the non-formal sector. • The MoLPSHRD’s South Sudan Vocational Training Policy (final draft: MoLPSHRD, 2008) aims at improving the system by: • implementing a vocational qualification framework • aligning the structure of vocational education and training to the standards of knowledge, skills and competencies set forth by the National TVET Qualification Framework • introducing quality assurance mechanisms • modularizing TVET programmes and offers • introducing a credit accumulation and transfer system • establishing a system for the recognition of prior learning • improving the governance of vocational training by strengthening the role of the Directorate of Labour and Industrial Relations and establishing a Cabinet Committee for Vocational Training as well as a Social Partners’ Vocational Training Forum • establishing a trainee council, an advisory board and a community support group for each VTC • introducing innovative financing mechanisms, such as a national vocational training fund • ensuring the development of human resources in the TVET system • establishing an LMIS. This policy document was developed through a participatory process, involving a broad range of national and international stakeholders. The policy highlights the importance of a coherent vocational training system and consequently the need for better coordination among the diverse providers of vocational training. The interrelations between the vocational training system and the vocational education system are not analysed in any detail. The document pays only marginal attention to the fact that still around 75 per cent of the population are illiterate and that this requires appropriate measures, such as the development of adequate teaching and learning materials and massive investment in the training and employment of (functional) literacy facilitators/trainers/teachers. On the whole, there is very little divergence between the core strategic and policy actions proposed in the two policy documents, including the need for massive investment in the TVET sector, the training and retention of TVET teachers, sustainable financing mechanisms, and a TVET qualification framework. The policy convergence across the two documents should facilitate their harmonization into a single national TVET policy. At the same time, the

29

harmonization process should also take into consideration the shortcomings of both documents. These include overambitious and difficult to implement reforms such as the National Qualifications Framework; focus on the internal structure but not linking directly with the present and future needs of the economy; failure to give consideration to out-of-school children and youth; neglect of the crucial aspects related to the link with secondary education, including the fact that most graduates from secondary education enter the world of work without any relevant skills; and more focus on formal and school-based TVET while the needs of many target groups (rural youth, out-of-school children and so on) are different and will require more workplace-based and community-led initiatives. Both policy documents put a strong emphasis on an outcome-based/competency-based TVET system development, and propose the introduction of a national TVET qualification framework or vocational qualifications framework as an overarching structure. Such proposals are in line with the current international trends in TVET, where there is growing popularity of qualification frameworks, a competency/outcome orientation and modularization/unitization. The first draft of a National TVET Qualification Framework was presented by MoEST in June 2013 (MoEST, 2013a). The framework is viewed as a ‘tool for change’, and pursues various general and specific objectives, including greater transparency, flexibility and coherency of the TVET system, the recognition of learning outcomes and qualifications, the introduction of flexible pathways, and the provision of more and better TVET programmes that meet the requirements of the labour market. The implementation of such a TVET qualification framework, connected with the introduction of competency-based occupational standards and assessment procedures, means a paradigm shift away from the current institution-led and input-based system to a purely outcome-based system. The implementation of a National TVET Qualification Framework may contribute to initiate much-needed change processes, including the introduction of a common language in the area of TVET, stakeholder engagement and coordination, coherent regulation (including provision of TVET assessment and certification) and a better transparency of qualifications. Since a TVET qualification framework is driven by the employment sector, the major stakeholders will be industry and the private sector. Other stakeholders include trade associations, workers’ unions and professional bodies, NGOs and civil society organizations. However, the policy priority given to such a framework in an environment such as South Sudan’s, and the likelihood of its success, are highly questionable. Stakeholders usually need at least several years’ lead time to implement the adopted measures. Furthermore, there are hardly any national experts available, for example for the development of occupational standards, occupational assessment procedures and tools, and framing curricula. The design and implementation of a National TVET Qualification Framework would depend heavily on foreign experts, and the costs can be expected to be very high.5

3.2 Intermediary authority The absence of a strong national accreditation and quality assurance body for TVET is a challenge that also needs to be addressed within an overall governance structure. The policy review mission also created awareness among the South Sudanese TVET system managers of recent initiatives to create a TVET coordinating and oversight agency in many other African countries (see Box 2). In many countries, governance reforms have involved the establishment of TVET authorities to strengthen coordination across a diversity of forms of TVET provision, sometimes including both public and private provision. Traditionally, responsibility for TVET was fragmented across different ministries, with separate governance of training for areas such as forestry, health, agriculture and tourism, while training offered by private providers, NGOs and workplaces was often not regulated. TVET agencies have been established by many African countries, as ‘intermediary institutions’, usually managed by boards comprised of representatives of national TVET stakeholders. This may include relevant government departments, employers, private providers, NGOs and social partners. The TVET domain in which agencies perform their coordination role varies. In Namibia, Tanzania and Zambia, the established TVET agency is acknowledged as being responsible for sector coordination across public and private TVET provision. In two other countries, Botswana and Malawi, the agency coordinates private and enterprise-based provision only (whilst the state retains responsibility for coordinating TVET in the public sector). In Mauritius, the

5

30

See Raffe (2013) for a detailed assessment/description of the impact of national qualification frameworks.

MITD coordinates training in the public sector while coordination of private sector training is achieved through the HRD Council and MQA. Sector-wide coordination agencies are proposed for Swaziland and Mozambique. The establishment of a central TVET authority in these countries is seen as a primary requirement for the development and promotion of TVET. Such a national TVET authority, working through its various organs, will minimize the fragmentation of TVET provision, introduce some measure of coherence and accountability in the TVET sector, and avoid costly duplication of training programmes while assuring standardization of provision, quality of delivery, comparability of qualifications, and an effective framework for resource mobilization. Box 2: Composition and Functions of TVET Apex Bodies Country

National TVET agency proposed for establishment

Sector-wide coordination role

Quality assurance

Standards development

Management of skills fund

Ethiopia

Federal TVET Agency

X

X

X

-

Ghana

Council for TVET (COTVET)

X

X

X

X

Malawi

TEVETA

Employer and informal TVET

X

X

Namibia

NTA

X

X

X

X

Tanzania

VETA

X

X

X

X

NACTE

X

X

X

X

TEVETA

X

X

X

No fund

Zambia

Sources: UNESCO (2013) and authors.

According to a UNESCO review of intermediary bodies in the Southern African Development Community (UNESCO, 2013), the specific functions of TVET agencies differ in detail, but most have also been tasked with governance responsibilities for ensuring the quality and relevance of TVET in their area of responsibility. The functions may include: „„ strategic planning for the TVET sector, including development of national skills plans „„ monitoring the performance of TVET in the sector „„ regulation of providers through registration and inspection „„ quality assurance of TVET provision „„ accreditation of TVET programmes and providers „„ management of TVET funds „„ curriculum development and review „„ setting national standards „„ awarding qualifications and conduct of examinations „„ registering assessors and trainers „„ developing training pathways and programmes „„ promoting access to TVET, including national priorities, for example supporting small and medium-sized enterprises, and marginalized learners.

31

3.3 Conclusion On the whole, TVET in South Sudan is underdeveloped and the TVET reform process is in its infancy. There is an urgent need for a clear policy direction for TVET in the country and the harmonization of the two major draft TVET policy documents, which are yet to be finalized and formally adopted. There appears to be a strong political will for this to happen, as expressed by the political leadership and officials of the various ministries interviewed during the policy review mission.

32

4.

Financing of TVET

There is no reliable data on the financing of TVET in South Sudan. A source at MoEST agreed that funding for the TVET sector was a huge challenge, and that the total annual allocation to the sector was only about SSP  5 million (about US$1.25 million), which was barely enough for paying the salaries of staff. According to the MoCYS Directorate of Training, only about one-quarter of the budgetary requirement for running its youth training centres is usually released. Inadequate funds and lack of instructors are two of the major reasons accounting for the closure of several training centres, some of which were well equipped with training facilities provided by the International Labour Organization (ILO), the Japan International Cooperation Agency (JICA), the UN International Development Organization (UNIDO), the UN Children’s Fund (UNICEF) and other donors and partners. The managers of the training institutions visited during the mission for this policy review were emphatic in saying that the only funding they receive from their sector ministries was for the payment of staff salaries, although they were unable to give specific details of the amounts involved. There is also very little data on the cost of provision or unit costs. Although the proportion of the government budgetary allocation that goes to the TVET sector is unknown, funding to the sector includes the payment of capitation grants by government to the training centres, and the payment of tuition fees of between SSP 250 and SSP 300 (about US$60–75) per year.

4.1 Financing strategies Finding sustainable and innovative mechanisms for financing TVET in South Sudan is a major challenge, partly because of the political instability and the weak industrial base of the country, as well as the generally high incidence of poverty among the population, and the negative perception of TVET. External donor organizations, development partners and NGOs provide the bulk of funding for TVET in the country. The over-dependence on external donors for financing TVET in the country led to the closure of a couple of VTCs in the recent past, when donors withdrew their support because of the insecure political climate, or because they reprioritized other areas and the ever-increasing humanitarian needs. Other sources of income include revenue generated internally from the production and commercial activities of the training centres. Internally generated funds are derived from services and sale of goods produced by the training centres. These funds are generally used to procure training consumables, although some VTCs claim they also use internally generated income to pay incentive allowances to their instructors and administrative personnel. However, no details of the amounts involved were made available to the mission team at the time of the visit.

4.2 Resource mobilization and utilization Although some external resources are mobilized through development partners and other international organizations, it appears that the country lacks the capacity to raise domestic funds to support TVET delivery. Bilateral and multilateral partnerships in TVET in South Sudan take the form of direct funding to the government and NGOs for building learning and training infrastructure, providing in-service training for teachers/instructors or scholarships for trainers to study abroad. Some of the development partners active in South Sudan are the European Union, JICA, the International Labour Organization (ILO), the UK Department for International Development (DfID), UNIDO, UNESCO, the International Organization for Migration (IOM) and UNICEF. A recent development in donor support and funding in South Sudan is the creation of a country-based development partners’ platform where different agencies share information on their interventions in the country. A good example of collaboration among development partners is the planned pooling of resources by UNESCO, DfID, UNICEF and the European Union to support TVET curriculum development and provision in the country.

33

In all the discussions held with officials of the various ministries, head teachers, teachers and instructors, it became apparent that government funding alone was inadequate and that there was need to diversify the funding sources. In many countries, such as Mauritius, Côte d’Ivoire, Benin and to a lesser extent Kenya, measures have been introduced to attract additional funding from the private sector, mainly through national training funds, often based on payroll levies. The funds are used specifically for on-the-job training and continuing training. However, it is still open to question whether these training levies are effective and whether enough funds can be generated through payroll levies, since many countries have a narrow tax base. Furthermore, in some countries (such as Côte d’Ivoire), issues of transparency and accountability concerning the use and management of the funds so collected has generated tension between the government and sections of the private sector, which perceive training levies as an additional tax burden (ADEA, 2012). A cursory assessment of the industrial environment in South Sudan does not appear to support the introduction of such training levies. Indeed, one prominent private sector player, interviewed on the issue of sustainable financing of TVET in the country and the possibility of payment of training levies by industry, confessed that companies and businesses in South Sudan may not yet be ready to support and contribute to such a fund. However, a training fund might have several sources of funding, and in the short term, even without private sector immediate contribution, it can foster participation in steering a TVET system of major stakeholders, particularly employers. Box 3 provides international lessons learned regarding key conditions for training fund success. Box 3: Key Conditions for Training Fund Success Key condition

Justification

Security of income

Ensure adequate, sustainable and stable volume of training fund income

Autonomy and control

Secure decision-making autonomy of management board and its control over budget allocations

Stakeholder ownership

Foster ownership through substantial board representation of major stakeholders, particularly employer groups, where training levies are in place

Activities (and disbursements) for national training needs only

Ensure targeting of training fund policies and disbursements according to defined national training needs and avoidance of extraneous activities

Avoidance of training provider role

Limit subsidies and preferential treatment to training centres if run (and financed) by a training fund lest they distort training markets and inhibit movement toward an open, competitive training system

Decision-making transparency

Keep decision-making open and make sure the basis for fund allocation is known and understood

Source: Ziderman (2002, p. 46).

The government of South Sudan is in a process of creating a legal environment that is amenable to a transparent, equitable and sustainable petroleum industry. On 17 July 2013 the Legislative Assembly passed, and pending review and approval from the Council of States will soon enact, the newest addition to the ongoing reform process, the Petroleum Revenue Management Act (PRMA) (2012). The PRMA establishes a formalized structure for distribution of petroleum revenues to immediate budgetary needs, savings and revenue stabilization, and direct transfers to petroleum-producing states and affected communities. It sets a high bar for reporting requirements for both the government and oil companies, with the overarching principle of transparent and accountable management. As it stands, the PRMA has the potential to be a game changer for South Sudan, avoiding capital flight and unstable public expenditures while ensuring that long-ignored communities in the oil-producing regions see direct benefit from the petroleum sector. In this context, the government should consider allocating a reasonable percentage of the country’s oil revenue to development of the TVET sector.

34

4.3 Conclusion There is a need to design and implement a sustainable financing mechanism for TVET. In view of the high incidence of poverty in the country and the poor prospect of mobilizing training levy contributions from a currently weak industrial private sector, the government alternative could be to consider allocating a reasonable percentage of the country’s oil revenue to development of the TVET sector. Enacting a policy encouraging income-generating self-sustainable training centres focusing on agricultural activities as an example could be a quick win for a short to medium-term revival of some of the centres.

35

5.

Access and Participation

In general, access to and participation in TVET provides an opportunity for young people and adults to acquire employable skills for the world of work. Improving access to vocational skills acquisition for all age groups and categories of learners regardless of gender, physical disability or geographical location should therefore be a major priority for all governments. The participation of youth and other vulnerable groups in skills development programmes that lead to gainful employment is critical to the promotion of social cohesion and solidarity, poverty reduction, good democratic governance and responsible citizenship. According to the EMIS data, there were only thirty functioning TVET centres in South Sudan in 2012, including secondary technical schools and VTCs under MoEST. Many of the TVET institutions run both morning (regular) courses and afternoon programmes. Although TVET still has low prestige in the country, it appears there are many more applicants than the training institutions can absorb. For example, at the Juba Technical Secondary School, only 240 out of about 400 applicants are admitted every year. Typically, only about 50 per cent of the candidates for admission to TVET programmes nationally are able to be admitted. The low capacity of the TVET centres is attributable to inadequate training facilities, inadequate number of qualified technical teachers and instructors, and funding constraints. Increasing access to TVET depends partly on the expansion of the system. However, the TVET system is not expanding fast enough to absorb the high number of primary school leavers, which has doubled over the past 10 years (World Bank, 2012). Investment in formal TVET institutions being costly and the number of VTCs rather limited, the formal TVET sector is unable to expand as quickly as it should to meet the enrolment demand. It is obvious, therefore, that access to TVET in the short term will be most probably through non-formal programmes offered by NGOs, community-based and faith-based organizations.

5.1 Perception and attractiveness of TVET In South Sudan, as in many other African countries, TVET is considered as a second-best choice to general education by many people, especially young people, who prefer educational pathways that lead to white-collar jobs. Enrolment rates are therefore generally low. The reasons for the low attractiveness of TVET include the mentality which views the TVET route as reserved for the less academically skilled. This perception is fuelled by the comparatively low entrance requirements to VTCs. In addition, the opportunities offered for academic or professional progression are limited for graduates of the TVET system. Paradoxically, many TVET centres indicated that they were unable to admit large numbers of applicants, many of whom were turned away because of the lack of capacity. It appears therefore that many young less-educated Sudanese see the vocational education and training track as a credible avenue for the acquisition of skills that will enhance their employment opportunities. The poor perception and unattractiveness of TVET in Sudanese society may just be changing, especially among the younger generation. Nevertheless, some measures are being initiated or planned to enhance the attractiveness of TVET. These include a plan to establish four new polytechnics to train higher-level skilled workers for the economy. When established, the polytechnics will also offer a logical academic and professional progression avenue for capable students and learners from the VTCs and technical secondary schools. Some other initiatives aimed at propping up the image of TVET include advocacy, showcasing role models, and financial and non-financial support mechanisms, such as the provision of tools to successful trainees for start-up and self-employment.

5.2 Female participation In general, female participation in TVET in South Sudan is low compared with male participation. Typically, female enrolments at the technical secondary school level and in the VTCs are low. At the Juba Technical Secondary

36

School, for example, only 83 girls were enrolled out of a total student population of 531.MoLPSHRD does not keep any centralized data on trainee enrolments or graduation rates from the VTCs under the Ministry or the ones affiliated to the Ministry for certification purposes. However, information gathered from one of the few good privately run VTCs, the St Vincent de Paul VTC on the outskirts of Juba, shows that 331 trainees, including 58 females (or 17 per cent of the cohort), graduated from the centre in 2013. This VTC is heavily dependent on foreign donor support, and runs 9-month (one academic year) regular programmes as well as short-duration vocational training courses in auto mechanics, carpentry, building and construction, general electricity and wiring, tailoring, and computer and secretarial studies. The disciplines of secretarial studies, computer skills and tailoring have traditionally shown the highest concentration of women and girls. Very few girls enrol in engineering, technology and other traditionally male-dominated disciplines. The low female participation in the male-dominated trade areas such as auto mechanics, carpentry, and building and construction may be explained by cultural attitudes and prejudices, the lack of girl-friendly training facilities in the schools, and the absence of female role models in engineering and technology-based professions. There is a need for training policies to take into account the specificities of women in TVET, especially in the rural areas.

5.3 Participation of ex-combatants in TVET TVET in post-conflict countries or contexts such as South Sudan is particularly challenging. The TVET environment in post-conflict zones is often characterized by damaged or destroyed teaching, learning and training facilities, low delivery capacity and high demand for vocational training, inadequate and poorly qualified teachers, and a dearth of data and statistics on the TVET sector. PWDs and ex-combatants constitute a special group with critical skills needs to facilitate their reintegration into the society and enhance their ability to earn sustainable livelihoods. In South Sudan, the agency charged with the responsibility of reintegrating ex-combatants into the society is the NDDRC. The NDDRC claims that it trained 292 ex-combatants in a pilot programme supported by UNESCO about a year ago, all of whom are now all gainfully employed with the support by the World Bank. The ex-combatants undertook a 12-week Integrated Literacy and Skills Development programme in literacy and numeracy, introductory vocational courses, vocational counselling, psychosocial support and life skills, including civic and peace education. The vocational courses included plumbing, masonry, carpentry, welding, auto mechanics and agriculture (vegetable production and livestock rearing). On successful completion of the course, the ex-combatants were given a set of work tools and paid monthly stipends for one year as part of the reintegration package. According to an impact evaluation report of the Disarmament, Demobilization and Reintegration (DDR) project prepared for UNESCO by Forcier Consulting in October 2013, the project beneficiaries generally agreed that the training received was sufficient to prepare them for earning decent livelihoods in the world of work. Drawing on the success of the pilot programme, a second phase, involving about 4,500 ex-combatants from the 8-year planned target of 150,000 ex-combatants, is planned for the very near future, depending on the return to peace in South Sudan. Given the large numbers of ex-combatants involved, there may be need to mainstream the project into the overall national skills development strategy for greater efficiency and effectiveness (see Box 4), as well as for the implementation of a successful nationwide security sector reform (SSR).

37

Box 4: Maximizing TVET Interventions in Post-conflict Countries To maximize the impact of TVET interventions in post-conflict situations, the Commonwealth Association of Polytechnics in Africa (CAPA), at an international conference in Sierra Leone (May 2007), made the following recommendations: – TVET in post-conflict countries should be seen as giving hope, confidence and economic empowerment to the youth and vulnerable of society, in particular, females, ex-combatants and survivors of war and conflict; – Scholarship schemes should be instituted for survivors of war and conflict to enable them to acquire knowledge and skills for sustainable livelihoods and further education; – TVET providers should emphasize short duration, job-specific and ready-to-use skills necessary for infrastructure and economic development; – Training should be delivered close to the domicile of the learners at community skills-training centres or through the use of mobile training workshops or vans, where possible; – Training programmes should include peace education, basic literacy and numeracy, and family life skills; – Post-training support services, including micro-financing and mentoring, should be provided to successful trainees to facilitate their insertion into the world of work.

5.4 Conclusion There is a need to develop a clear strategy to promote the participation of the most vulnerable groups in South Sudanese society, including girls and women, pastoralist communities, rural youth and ex-combatants, especially in the agricultural sector. The special skills needs of PWDs also deserve attention. Training should also include modules on life skills, entrepreneurship and financial literacy.

38

6.

Quality Arrangements

How can the TVET students be prepared to meet the quality demands of the job market? The quality of TVET delivery is dependent on several factors, including the availability of competent teachers, adequate and appropriate teaching and learning facilities, an effective quality assurance system, and a learning methodology that effectively combines theory with practice.

6.1 Teachers and instructors Generally, training quality is more likely to be enhanced by the availability of well-trained and practically oriented teachers and instructors with excellent pedagogical skills and experience from the world of work, appropriate learning and teaching materials, and adequate training equipment and facilities. In South Sudan, there is no mandatory requirement for prospective teachers and instructors to demonstrate a certain level of practical skills competence or experience in enterprises before they are hired. However, during the visits to Juba Technical Secondary School, the Multi-Service Training Centre (MTC) and the St Vincent de Paul VTC, students and trainees were observed having practice lessons under the supervision of instructors, some of whom claimed to have had workplace experience. This category of instructors appears to be in the minority, since such professionals would normally attract much higher remuneration in industry. Indeed, an auto mechanics instructor at one of the VTCs admitted that it was only the passion he had for teaching that had made him accept the offer of appointment at the VTC, and not the salary. There are no dedicated technical teacher training colleges in South Sudan, although one is planned to be established in the near future. According to the World Bank (2013), teacher preparation in general is a key challenge of the education system. Evidence gathered from all the institutions visited revealed that technical teachers are in short supply. Most of the TVET teachers/instructors interviewed for this report had been either trained in the neighbouring countries of Sudan, Uganda and Kenya or hired from these countries. Instructor training is seen as a major challenge which needs to be addressed. Most of the teachers and instructors are either diploma or first degree holders. The TVET system needs teachers and instructors who are both pedagogically and technologically qualified. The mission was told that plans are far advanced to recruit forty-two technical teachers from Zimbabwe. It is important, however, to take into account the challenge of language of instruction which could arise when mostly English-speaking Zimbabweans are not able to communicate effectively with their South Sudanese students, who are not proficient in the English language but are more comfortable communicating in Arabic.

6.2 Teaching and learning facilities The availability of modern teaching and learning facilities and training equipment has a direct impact on TVET quality delivery. Although the mission did not have the opportunity to visit all the TVET institutions in the country, we were informed that most TVET infrastructure is obsolete. However, the mission saw some reasonably good training equipment and ICT infrastructure at the MTC in Juba. The MTC, which operates under the aegis of MoLPSHRD, was supported by JICA, which funded the provision of training equipment and tools and the rehabilitation of the centre buildings. The MTC, according to the MoLPSHRD Directorate of Vocational Training, is the most advanced and the only one of its kind that is currently operational. It offers courses in building construction, plumbing, auto mechanics, carpentry and joinery, machining, electricity and computer skills. The courses are of 2 years duration and are often over-subscribed. Class sizes are small, about twenty-five students per class. The curriculum, which was developed at the MTC by both local and foreign experts, is 70  per cent practice and 30  per cent theory. Applicants for admission should have completed primary grade 8 or dropped out of technical/secondary school, and must pass a selection interview. Tuition fees are about SSP 250 per year.

39

6.3 Integration of ICT into training provision The integration of ICT and technology-mediated teaching and learning into training provision can also contribute to quality delivery. ICT does not appear to be used in TVET delivery in South Sudan, possibly because the technology is not available and/or there is a lack of capacity to manage ICT infrastructure for skills training. In the training institutions visited, the available computers were used mainly for computer literacy and secretarial classes, and not as tools for technology-mediated learning. But the need for the infusion of modern technology into the training provision appears to be acute. In particular, the country needs auto mechanics and technicians conversant with modern electronic vehicle systems and technically competent to repair and service such vehicles, which are a common sight in and around Juba, as well as qualified technicians to undertake repair and maintenance of power-generating sets, which are widely used because of the lack of a national grid.

6.4 Internal quality assurance mechanisms Internal or institution-based quality audit strategies are not formalized, and there are no mechanisms in place to commit system managers and heads of institutions to achieving set quality standards. Generally, internal quality assurance systems are not seen to be functional in the institutions. Students in technical secondary schools are prepared to write centralized final-year examinations which are common to all similar institutions. These examinations are national in character and are therefore regarded as a measure of the quality of teaching and learning at the expense of internal quality assurance mechanisms. Practical examinations are assessed not externally but internally by the teachers and instructors. As a result, the proficiency levels of the students and trainees may vary from institution to institution for the same disciplines. Because there are no effective internal quality assurance mechanisms in the institutions, it is impossible to take major decisions regarding curriculum orientation that should be informed by evidence from a rigorous quality assurance system. This situation does not allow for flexibility and innovation in curriculum design and delivery. Indeed, the TVET curriculum has not been reviewed in more than 10 years, although a curriculum review workshop is planned for September/October 2014.

6.5 Accreditation of training providers There is no system in place for the accreditation of TVET providers in South Sudan. This may be because of the absence of standards and norms regarding such quality indicators as learner–teacher ratios, type and adequacy of training equipment and tools, teacher qualifications and experience, laboratory and workshop space and layout, collaboration with employers, and completion of qualifications. All these are necessary to develop, implement and enforce credible accreditation systems.

6.6 Conclusion In addition to the quality issues raised in the preceding paragraphs, the two draft TVET policy documents make the case for the adoption of outcome-based or competency-based training (CBT) methodology as a quality improvement strategy. It appears, however, that the TVET system managers may not have fully appreciated the implications for South Sudan of implementing an outcome-based methodology at this stage. The CBT methodology is rather expensive to develop and implement. Industry experts and employers have to be involved in the development of occupational standards and assessment of trainees. The methodology also requires teachers and instructors who are trained for CBT delivery and are regularly exposed to new technologies through periodic internships in industry. It is also important that a strong, professional management and leadership cadre is available at both the institutional and national levels. It is reasonable to assume that the country is not ready yet to fully implement an outcome-based training methodology. In the short to medium term, a stronger curriculum focus on practical skills training, the participation of industry experts in training delivery, and a more rigorous examination and practical skills assessment with proficiency testing as proof of competence may be considered as an alternative to a fully outcome-based or CBT methodology.

40

7.

Relevance and Impact

The acquisition of technical and vocational skills must lead to gainful employment. For this to happen, it is important that training is geared to the needs of the labour market. In order to engineer a TVET system that is flexible and responsive to the skills needs of the employment sector, there is a need to identify the skills gaps and shortages in the labour market. One way of doing this is to establish an LMIS.

7.1 Identification of labour market needs and skills gaps The function of an LMIS is to collect, process and make projections from information available from employment ministries and agencies, population census and household surveys, tracer studies that track the employment destinations of graduates, labour market-related reports, and feedback from employers. Such evidence-based information can then be used by training institutions for the revision of their curricula or for the design of new training programmes and courses that match the skills in demand by the economy and thus enhance the employability of their trainees. The employed and unemployed can also use LMIS information to determine the specific type of education and training programme they wish to pursue, for upgrading their skills or reskilling. There is currently no LMIS in South Sudan. The private sector in South Sudan is weak, with only a few industries, mostly in the beverages and telecommunications sectors. It is therefore not surprising that information on the supply and demand for skills in the country does not exist. It is understood that the World Bank has produced an Inception Report on Market Assessment, Skills Gap Study and Youth Needs Assessment in the country (ostensibly commissioned by or in collaboration with MoLPSHRD). This report was not available at the time the mission was in South Sudan. However, a cursory observation of the South Sudanese economy reveals that several sectors of the economy will require skilled personnel. These include the transportation sector (transport and logistics), the roads construction and maintenance sector, the building and construction sector (masonry, painting, tiling, electricity), the water and sanitation sector (water management and supply, plumbing), the mining sector (heavy equipment and machine operators), modern vehicle repair and maintenance, the agricultural sector (irrigation, horticulture and animal production), and the hotels and hospitality sector. Even where labour shortages are not apparent, it was observed during the mission that the country is heavily dependent on foreign and immigrant labour from neighbouring countries. It is therefore important that TVET programmes are designed to train South Sudanese for these critical sectors of the economy. In the long run, a comprehensive human resource development plan may be necessary as a response strategy to the skills shortages and needs of the growth and emerging sectors of the economy. The plan would indicate areas of skills scarcity in various sectors of the economy; sectors likely to generate employment opportunities; promising occupational areas, and required educational and vocational skills. The plan would also provide a basis for career guidance and counselling, as well as help to alert the government and other stakeholders to emerging skills and human resource gaps and challenges. Countries such as Mauritius and South Africa have established human resource development councils to help align training to labour market demands.

7.2 Conclusion To increase the relevance and employability of trainees and ease the transition into the world of work, an integrated approach to job placement is necessary. This should include advice on jobs and training opportunities, procedures for starting or doing business, and micro-finance interventions. A key element of such an integrated approach is an LMIS, which will not only help align training opportunities with job opportunities but also provide useful information on the skills gaps and shortages in the human resource base of the country. Such a system requires strong coordination and collaboration among the different economic sector agencies and players.

41

8.

The Knowledge and Evidence Base

Data collection and analysis of social and economic indicators in South Sudan appear to be hampered by weak capacities and structures at all levels. In the education sector, the only data set available covers the EMIS data that MoEST has been collecting since 2007. However, this data contained very little information on the TVET subsector.

8.1 Monitoring and evaluation of education data and statistics The EMIS is managed by the data and statistics unit under the Directorate for Planning and Budgeting in the MoEST Department for Planning. Before the establishment of the EMIS, a first set of baseline data was collected through Rapid Assessment of Learning Spaces (RALS) in 2006. Since then, the number of education and training providers reporting data in the annual education census has increased significantly. While fewer than half of the country’s primary schools were included in RALS, the current data for the year 2013 covers the vast majority of the country’s education and training providers at pre-primary (98.6 per cent), primary (98.2 per cent) and secondary (93.3 per cent) level. The situation in the alternative education system (AES) is far more problematic. There exist no baseline data for the AES, and an up-to-date list of the total number of AES centres is currently not available (MoEST, 2014, pp. 7–8). Technical secondary schools under MoEST form an integral part of the secondary education subsector, and there is no separate data available for this type of school, for instance enrolment data disaggregated by the professional or occupational fields that are offered in the schools, data on the technical qualification of the teachers or the number of technical workshops. (However, such data is usually available at the individual schools.) The general data reported for secondary education include the following information (MoEST, 2014, pp. 71–93): „„ enrolment (disaggregated by state, gender and grade) „„ overage students (disaggregated by state, gender and grade) „„ gross intake rate (GIR) and net intake rate (NIR) „„ students with special needs (disaggregated by state, gender and grade) „„ schools (disaggregated by type of ownership) „„ teachers (disaggregated by state, gender, qualification and employment status) „„ student–teacher ratio (disaggregated by state and type of ownership) „„ classrooms (disaggregated by state and type) „„ student–textbook ratio (disaggregated by state and subject) „„ schools without access to drinking water, toilets, electricity and health services (disaggregated by state) „„ students’ promotion rate, repetition rate, drop-out rate (disaggregated by state, gender and grade). While data collection for general secondary education has improved considerably, the absence of specific data for the technical secondary schools makes strategic planning in this area still difficult. In the future, more detailed data is needed so that the expansion of the technical secondary school system can be better aligned with the priority sectors of the economy.

42

8.2 TVET MISs TVET MISs are designed to inform decision-making in such areas as policy formulation, funding strategies, curriculum changes, system management and training relevance. The need for such a system is acknowledged, but it appears that the lack of relevant technical expertise and resources has prevented its development in the country. The absence of a TVET MIS is a key challenge that needs to be addressed. Data and information required for designing appropriate labour-responsive TVET programmes, such as graduate output and employment data, are not available. Data on vocational training that is provided through centres which operate under the aegis of other line ministries, for instance MoLPSHRD or MoCYS, is not included in the EMIS. Attempts by MoLPSHRD to measure the quality as well as the quantity of vocational training are still inadequate. Some data can be found at some of the VTCs but these have so far not been aggregated at the national level. There is currently no tracer studies system that provides robust data to measure education and training outcomes and impacts, including employment rates by economic sector and/or occupation, and by educational attainment (level and type of programme).

8.3 Conclusion In general, monitoring data are scarcely used in policy and programme development. A modern approach would require a shift from traditional inspection activities to quality management. The monitoring and evaluation capacity of both vocational education and training providers and supervisory bodies needs to be strengthened. In addition, the education and training system reforms need to be underpinned by the development of a skills forecasting system. Furthermore, it may be necessary to conduct a mapping or situational analysis of the existing TVET institutions in the country. This will provide the useful information that will lead to the modernization/renovation of the system.

43

9.

Recommended Next Steps

The findings and observations made during the mission relate to the following key issues and challenges: improving the coordination and governance of the TVET system; ensuring an effective and sustainable funding system; moving towards a more demand-driven approach; linking to growing sectors and rural development; expanding access and addressing marginalization; adopting an incremental approach for quality development; improving the links between the general secondary system and TVET; and reinforcing monitoring, evaluation and information systems. The following section offers some suggestions for revitalizing the TVET system in South Sudan. Annex 2 provides a summary of suggestions and indicative prioritization.

9.1 Improving the coordination and governance of the TVET system In the short term, an inter-ministerial task force should be constituted to coordinate TVET in South Sudan with the medium-term goal of harmonizing the existing TVET policy documents developed by MoEST and MoLPSHRD. This should be one of the first priorities of the inter-ministerial task force. Another action point for the task force is to ensure that TVET is clearly covered in the national development strategies/plans and that key policy-makers are convinced about the importance of TVET for the development of the country. In the medium to long term, depending on the strategic trajectory of TVET in the country, a central TVET authority may be envisaged. Such a body would include representation from all ministries with TVET activities, plus private institutions including chambers of commerce, professional and trade associations, NGOs involved in TVET, and development partners. It would be responsible for setting and managing the regulatory framework for TVET, including accreditation of TVET providers and programmes as well as the development of occupational standards, assessment procedures, frame curricula and a certification system.

9.2 Ensuring an effective and sustainable funding system Adequate funding remains an enormous challenge for South Sudan’s TVET sector. Together with the lack of teachers and instructors, the absence of sufficient funds has been responsible for the closure of several TVET institutions, such as those in Malakal, Rumbeck and Aluak-Luak. It can be expected that the financial resources allocated to TVET by the South Sudanese government will remain on a very low level, at least in the medium term. At the same time, the government has the objective of raising the number of TVET students significantly. It is therefore advisable that the responsible authorities such as for instance the line ministries or a national task force to develop realistic financing plans in collaboration with development partners. In this regard, a mechanism for coordination of donor funding (to agree priorities and avoid duplications, for example) may be necessary. Such plans should also clearly define the contributions of the government of South Sudan, possibly as a percentage of the country’s oil revenue. Financing plans should be based on realistic cost estimates and alternative funding options such as additional funding from public and private employers (via a TVET levy if possible or voluntary contributions) and from students (for instance, tuition fees) should be considered. The problems can only be tackled effectively through better partnership, collaboration and coordination through different approaches: for example, increasing the budget allocation, relying on international funding or setting up a new source of funding, for example via the Petroleum Revenue Management Act (2012).

44

9.3 Moving towards a more demand-driven approach: linking to growing sectors and rural development Programmes for combining TVET with literacy for very poor non-literate people should be an important dimension to reach out to youth and adults in rural areas. It is also important to improve livelihoods by orienting TVET towards the demands of diverse economic activities: for example from farming and non-farming crafts and trades to the formal sector, such as infrastructure, hospitality and other relevant priority areas recognized by the government. Financial resources will be needed for these programmes targeting vocational/livelihood/literacy skills. It is important to partner with the private sector to recognize and to assist the most vulnerable youth in the rural areas by providing them with skills development that responds to their actual local needs.

9.4 Expanding access and addressing marginalization TVET stakeholders in South Sudan – including the donor community – need to develop a clear common strategy on how to promote the participation of the most vulnerable groups, among them girls and women, PWDs, pastoralist communities, rural youth and ex-combatants, especially in the agricultural sector. Training should also include instruction in life skills, entrepreneurship and financial literacy. As South Sudan is a post-conflict country, it is recommended that TVET programmes for all categories of trainees should include literacy, instruction in peace education, conflict prevention, citizenship and participation in the democratic space of the country. Balancing growth and quality is a major policy aspect that the government should address. In particular, there is a balance to be struck between devoting resources to increased access to TVET programmes and using the same resources to improving the quality of programmes. As mentioned in the report, demographic pressures and high levels of youth unemployment tend to favour the first approach; the need to improve national skill levels in an increasingly globalizing economy tends to favour the second. A combined approach could be considered: for example, by creating some centres of excellence while enhancing access elsewhere. These centres of excellence can be linked with growing/priority sectors and can act as a way to improve the image of TVET. They should be also linked with the envisaged polytechnics in terms of learning pathways. In rural areas where people are considered to be the most vulnerable, TVET programmes are facing particular operational problems, such as access to facilities, materials and trained teachers. These problems can be solved through better partnership and coordination between the local and provincial levels. Disparities between the genders remain a challenge especially in rural areas. Female participation at all levels of education is very low in South Sudan. This is a real problem that needs interventions from the government in order to eliminate gender disparities.

9.5 Adopting an incremental approach for quality development As noted in Chapter 7, some efforts are under way to identify the labour market needs and skills gaps in the South Sudanese economy. In the long term, the findings of this study may be built upon to develop a functional LMIS to inform training provision and guide the skills training options of young people. In South Sudan, capacities to educate and train TVET teachers, instructors as well as facilitators for functional literacy programmes, are extremely weak. The intended reforms of the TVET system – especially the shift to an outcome-based system – will require well-trained teachers who possess the knowledge, skills and appropriate attitudes to bring about curriculum change. Furthermore, the assessment of learning outcomes (skills, competences and attitudes) is complex, and requires systematic training in new pedagogy and assessment methods. In the short term, a strong curriculum focus should be placed on practical training, rigorous assessment and proficiency testing of trainees, and the recruitment and retention of well-qualified and competent teachers.

45

South Sudan needs a coherent strategy for the future development of its teaching staff. Such a strategy should outline how the continuously rising demand for qualified teachers and instructors can be met, and which standards will apply for their education, training and retention. The lack of appropriate teaching materials also hinders the improvement of TVET in South Sudan. Government and policy-makers should be concerned with staff contributing to TVET, and provide them with the necessary resources in order to undertake strong and successful TVET strategies.

9.6 Improving the links between the general secondary system and TVET As has been highlighted in this report, the government needs to take action to achieve the improvements needed. It should consider the following steps in order to match trainee capabilities with the skills needs of the labour market: „„ The secondary education system needs to be changed in the context of developing learners’ capacities in a way that will lead to access to employment; „„ It is important to enhance career guidance in the secondary education system; „„ The government should pilot TVET programmes in order to expand experience and build a more adequate policy system.

9.7 Reinforcing monitoring, evaluation and information systems There is a need to develop an instrument for the constant monitoring and evaluation of the TVET system. A nationwide TVET provider development plan is urgently needed in order to avoid overlaps in educational planning. Such a development plan should take into account (i) economic developments (for example, the locations of industry) and social developments; (ii) demographic developments (shaped by birth rate, migration and similar factors) in the catchment area of the TVET provider(s); (iii) general trends in educational performance (shown by progression rates, drop-out-rates and so on). In the short term, it may be necessary to assess the current situation of all the sixty-two TVET establishments in the country with a view to rendering them operational, as a strategy to expand access to TVET. Concrete action is required to put in place strategies to reopen the TVET institutions that are not operational, not only to increase access and participation but also to strengthen the provision. In this regard, an updated situational analysis of the TVET institutional landscape will be necessary as a first step. The analysis should consider input requirements such as courses, teachers and infrastructure but focus primarily on output requirements such as learning outcomes and labour market outcomes. Meanwhile in the short and medium term, the current provisions made by the NGOs and private sector should be encouraged and expanded. In the long term, the system should be composed of both private and public provision in the perspective of meeting individual and labour market needs.

46

References Association for the Development of Education in Africa (ADEA). 2012. Lifelong technical and vocational skills development for sustainable socioeconomic growth in Africa. Synthesis prepared for the 2012 ADEA Triennale. African Development Bank (AfDB) . 2012a. African Economic Outlook: South Sudan. Abidjan, AfDB. –––. 2012b. South Sudan: Infrastructure Action Plan, July. Abidjan, AfDB. –––. 2013. South Sudan: A Study on Competitiveness and Cross Border Trade with Neighboring Countries. Abidjan, AfDB. –––. 2014. African Economic Outlook: South Sudan. Abidjan, AfDB. Economist Intelligence Unit (EIU). 2014. Country Report: Sudan. August. London, EIU. Forcier Consulting. 2013. Impact Evaluation: Integrated Literacy and Life Skills Development Programme. Juba, UNESCO. Government of South Sudan. 2011. South Sudan Development Plan 2011–2013. Juba, Government of South Sudan. IMF. 2014. World Economic Outlook 2014. Washington DC: IMF. MoEST. 2007. Vocational-Technical Education Policy Framework, January. Juba, Ministry of Education, Science and Technology. –––. 2013a. National TVET Qualifications Framework (NTQF), 1st draft. June. Juba, MoEST. –––. 2013b. National Technical and Vocational Education and Training Strategy, 3rd draft, August. Juba, MoEST. –––. 2014. National Statistical Booklet 2013. Juba, MoEST. MoLPSHRD. 2008. Southern Sudan Vocational Training Policy, Final Draft, December. Juba, Ministry of Labour, Public Service and Human Resource Development. National Bureau of Statistics (NBS) 2011. South Sudan Statistical Yearbook 2011. Juba, National Bureau of Statistics. –––. 2012. National Baseline Household Survey 2009: Report for South Sudan. Juba, National Bureau of Statistics. –––. 2013. South Sudan Business Survey 2010. Juba, National Bureau of Statistics. Raffe, D. 2013. What is the evidence for the impact of National Qualification Frameworks? Comparative Education, Vol. 49, No. 2, pp. 143–62. UCW. 2011. Labour market in South Sudan. Working paper, December. Juba, UCW programme. UNDESA. 2013. World Population Prospects: The 2012 Revision, DVD edn. New York, UNDESA Population Division. UNDP. 2014. Human Development Report 2014. Sustaining Human Progress: Reducing Vulnerabilities and Building Resilience. New York, UNDP. UNESCO. 2013. Creative Economy Report. Paris, UNESCO. World Bank. 2012. Education in the Republic of South Sudan: Status and Challenges for a New System. Washington, DC, World Bank. –––. 2013. Interim strategy note (FY 2013-2014) for the Republic of South Sudan. Washington, DC, World Bank. –––. 2014. Doing Business 2014. Washington, DC, World Bank. Ziderman A. 2002. Financing Vocational Training to Meet Policy Objectives: Sub-Saharan Africa. Human Development Sector Africa Region, World Bank. p. 46.

47

Annex 1: List of contacts and persons interviewed

48

NAME

POSITION

INSTITUTION

Mr Salah Khaled

UNESCO Representative to South Sudan

UNESCO Juba

Ms Carolyn Medel-Anonuevo

Senior Education Specialist

UNESCO Juba

Dr John Gai

Minister

MoEST

Hon Bol Makueng Yuol

Deputy Minister

MoEST

Mr Michael Lopuke Lotyam

Undersecretary

MoEST

Mr Kuc Gideon

Director for TVET

MoEST

Mr Juac Agok Anyar

Deputy Director, Directorate for TVET

MoEST

Mr Taban Kozo Ape

Senior Inspector

MoEST

Mr Hailemichael Asrat Kassa

International Consultant

MoEST

Mr Ben Waigo

Deputy Director Policy, Planning, Institutional Development

MoLPSHRD

Mr Okide T. Kullo

Director of Vocational Training & Administration

MoLPSHRD

Mr Daniel Ruben

Senior Inspector Curriculum and Skills Standards; Head of BA Teacher Program

MoLPSHRD

Mr Mario Velvur Gunda

Director for Youth Empowerment

MoCYS

Mr William Deng

Chairperson

NDDRC

Mr Majur Mayor Machar

Deputy Chairperson

NDDRC

Dr Nick Waterman

Team Leader, Technical Assistance

EU Delegation

Mr Martin Ali

Acting Director

Juba Multi-Service Training Center

Dr Bertram Gordon Kuol

Manager

St Vincent de Paul Vocational Training Center

Mr Patrick Abigo

Assistant Executive Manager

St Vincent de Paul Vocational Training Center

Mr Samuel Amuzai

Head Teacher

Juba Technical Secondary School

Mr Paride Milla

Deputy Head Teacher

Juba Technical Secondary School

Annex 2: Summary of recommendations AREA OF RECOMMENDATIONS

SHORT TERM

MEDIUM AND LONG TERM

Improving the coordination and governance of the TVET system

• Constitute an inter-ministerial task force to harmonize the two existing TVET policy documents into a single National TVET Policy.

• Link TVET system closely to the national development strategies. • Unified TVET policy and legal framework among diversified TVET providers. • Introduction of a National TVET Qualification Framework or Vocational Qualification Framework.

Ensuring an effective and sustainable funding system

• Increase the budget allocation for TVET programmes. • Rely further on international and private sector funding. • Set up a domestic funding mechanism for TVET ( i.e.. allocation of reasonable percentage of country’s oil revenue to development of TVET).

Moving towards a more demand-driven approach

• Orient TVET towards demand driven economic priority sectors such as l sectoral activities (i.e. infrastructure, hospitality and services etc.)

• Pursue a strategy of increased private sector involvement to diversify livelihood, work and business opportunities.

Expanding access and addressing marginalization

• Assess the current situation of all the 62 TVET establishments in order to give the institutions an operational strategy to expand access to vocational education and training. • Develop a strategy to identify skills needs and develop skills programmes for the geographically, economically, socially and physically marginalized individuals. • Implement interventions with a view to eliminating gender discrimination, to support enrolment in TVET trades with better prospect in the labour market.

• Build better partnerships with rural TVET programmes through better collaboration and coordination between provincial and local level for better TVET outcomes. • Focus on providing a clear policy framework of regulations and incentives for training providers including NGOs and communities. • Support actions to improve the quality and relevance of TVET and skills development programmes through curriculum and training packages development, trainer training and skills assessment. • Provide relevant and reliable information to help prospective learners or jobseekers make informed choices.

Adopting an incremental approach for quality development

• Development of curriculum focused on practical skills training for trainees. • Development, rigorous assessment and proficiency testing of trainees. • Recruitment and retention of well qualified and competent teachers.

• Development of stronger outcome or competency-based training methodology. • Provide advice on jobs and training opportunities, procedures for starting or doing business, and micro-finance interventions. • Build a TVET teacher training pedagogy. • Improve teaching materials on TVET and systematic assessment methods. • Develop a strategy for the recruitment and retention of well qualified teachers.

49

AREA OF RECOMMENDATIONS

SHORT TERM

Improve links between the general secondary system and TVET.

Reinforcing monitoring, evaluation and information systems

50

MEDIUM AND LONG TERM • Develop the general secondary education system to meet the world of work skills requirements. • Support more substantive careers guidance system.

• Strengthen the monitoring and evaluation capacities of supervisory bodies. • Adopt a simple set of indicators to monitor the TVET system • Implement registration requirements for private and public TVET institutions based on simple and minimum information. This will ensure the upgrading of TVET institutions and improve the quality and relevance of their provision.

• Build more sophisticated monitoring and evaluation approaches supported by TVET and LMIS. • Implement a more detailed registration requirement for TVET institutions.