Review of the Roles & Functions of NAMCOL

Review of the

Roles & Functions

of NAMCOL

FINAL REPORT

23rd

September 2011

ii

South African Institute for Distance Education

P O Box 31822

Braamfontein 2017

South Africa

Tel: +27 11 403 2813 Fax: +27 11 403 2814

http://www.saide.org.za

© South African Institute for Distance Education, 2011

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Acknowledgements The Saide team would like to acknowledge the invaluable contribution of all stakeholders

who participated in the study and whose names are listed in Appendix B. In particular, we

wish to thank the political office-bearers who generously made time in their busy schedules

to share their views about NAMCOL. We would also like to express our appreciation to the

Director of NAMCOL, Mr Heroldt Murangi, who facilitated our work and without whom

this study would not have been possible.

Making the logistical arrangements for appointments, workshops and travel was very time-

consuming. We would like to single out the following NAMCOL staff who, in their various

ways contributed towards the success of the study:

Ms Verena van Wyk for being so efficient in fixing appointments with various high

ranking stakeholders;

Mr Paavo Pea , Regional Director of the Northern Region, for hosting one of the

researchers during his visit in the region;

Mr Adam Muheua, for overseeing the whole process and accompanying the Saide

researcher to the Oshana Region;

Ms Tutaleni Nampila for being so patient in taking the researchers to the various

meetings in Windhoek;

Ms Selma Amakutuwa for making the meeting appointments and accompanying the

researcher to various meetings in Oshakati;

Ben Harupe and Mr Darius Ngaujake for arranging transportation of researchers to

and from the airport on their visits to Namibia.

Dr Ephraim Mhlanga, Team Leader

Mr Ed Du Vivier, Consultant

Mr Tony Mays, Project Advisor

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Acronyms & Abbreviations used in this Report ABYP Adult Bridging Year Programme, a new initiative of the Directorate of

Adult Education

ASEP NAMCOL’s Alternative Secondary Education Programme (up to 2008)

AUPE Adult Upper Primary Education, a post-literacy programme delivered by

DAE staff

BETD Basic Education Teacher’s Diploma, the minimum qualification required

for teachers in Grades 1 – 10

BOCODOL Botswana College of Distance and Open Learning

CAL Computer-Assisted Learning

CBL Computer-Based Learning

CBM Certificate in Business Management, one of NAMCOL’s Professional

Programmes

CECD Certificate in Early Childhood Development, one of NAMCOL’s PPs

CED Certificate in Education for Development, one of NAMCOL’s PPs

CES Centre for External Studies, at the University of Namibia

CLGS Certificate in Local Government Studies, one of NAMCOL’s PPs

CoE College of Education

COL Commonwealth of Learning

COLL Centre for Open & Lifelong Learning, at the Polytechnic of Namibia

CWCY Certificate in Community-Based Work with Children and Youth, one of

NAMCOL’s PPs

CYP Commonwealth Diploma in Youth Development Work, one of NAMCOL’s

PPs

DAE Directorate of Adult Education, in the Ministry of Education

DE Distance Education

DED Diploma in Education for Development, one of NAMCOL’s PPs

DNEA Directorate of National Examinations and Assessment, Ministry of

Education

ELC e-Learning Centre, a joint initiative between NOLNet and inWEnt

EMIS Education Management Information System, a unit in the Ministry of

Education

ETSIP Education and Training Sector Improvement Programme

GER Gross Enrolment Ratio

GRN Government of the Republic of Namibia

HDABET Higher Diploma in Adult Basic Education and Training, a Professional

Programme that was formerly offered by NAMCOL in conjunction with

the UNISA ABET Institute

HE higher education

HEI higher education institution

HoC Head of NAMCOL Tutorial Centre

ICDL International Computer Driving Licence

ICT information and communications technology

IGCSE International General Certificate of Secondary Education, the predecessor

of the NSSCO that was discontinued in 2006

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INSET In-Service Education and Training

IRFOL International Research Foundation for Open Learning

ISP Internet Service Provider

IT information technology

JSC Junior Secondary Certificate, taken at the end of the junior cycle of

secondary education comprising Grades 8 - 10

LLL lifelong learning

LMS Learning Management System, software for storing digital content and

facilitating online courses (equivalent to a VLE, though the term LMS is

more frequently used in North America)

MBEC Ministry of Basic Education and Culture (between 1995 and 2000)

MoE Ministry of Education (since 2005)

MTEF Medium-Term Expenditure Framework

NAMCOL Namibian College of Open Learning

NAMRAC NAMCOL Regional Advisory Committee

NCHE National Council for Higher Education

NEACB National Examinations, Assessment and Certification Board

NEC 2011 National Education Conference that took place in June and July 2011

NER Net Enrolment Ratio

NGO Non-Governmental Organisation

NIED National Institute for Educational Development, a Directorate in MoE

NIPAM Namibian Institute for Public Administration and Management

NLAS Namibia Library & Archive Service, a Directorate in the Ministry of

Education

NLPN National Literacy Programme in Namibia

NOLNet Namibian Open Learning Network Trust

NPC National Planning Commission

NQA Namibian Qualifications Authority

NQF National Qualifications Framework (for Namibia)

NSSC National Senior Secondary Certificate, taken at the end of the senior cycle

of secondary education comprising Grades 11 and 12

NSSCH National Senior Secondary Certificate, Higher level

NSSCO National Senior Secondary Certificate, Ordinary level

NTA Namibia Training Authority

NTF National Training Fund

ODL open and distance learning

OERs Open Educational Resources

OUN Open University of Namibia, a proposal contained in the draft Policy on

ODL in Namibia

OVCs Orphans and Vulnerable Children

pdf Portable Document Format, a format for text-based computer files

PEMP Performance and Efficiency Management Programme

PoN Polytechnic of Namibia

PP NAMCOL’s Professional Programmes

QA Quality Assurance

RPL Recognition of Prior Learning

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Saide South African Institute for Distance Education

SEP NAMCOL’s Secondary Education Programme (since 2008, formerly

referred to as the Alternative Secondary Education Programme)

SME Small and Medium Enterprise

SMS Short Message Service

TUCSIN The University Centre for Studies in Namibia, a not-for-profit body

providing second-chance education, enrichment programmes and higher

education bridging courses

TVET Technical & Vocational Education and Training

UCLES University of Cambridge Local Examinations Syndication (now Cambridge

International Examinations), the body responsible for external moderation

and accreditation of the IGCSE

UNAM University of Namibia

UNISA University of South Africa

VLE Virtual Learning Environment, software for storing digital content and

facilitating online courses (equivalent to an LMS, though the term VLE is

more frequently used in Britain and Ireland)

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Executive Summary This review of NAMCOL’s roles and functions was undertaken during August and

September of 2011 by a team of researchers engaged by the South African Institute for

Distance Education. It involved a desk-top review of the literature in order to pinpoint best

practice examples of how comparable open and distance learning institutions have

addressed similar challenges. This was followed by a documentary review to identify key

socio-economic factors and national development goals that have shaped NAMCOL’s

evolution and form the contextual and policy framework for its future development.

Perceptions of the College’s successes and shortcomings were solicited from 150

stakeholders (political office-bearers, public servants, community and business leaders,

NAMCOL learners and their parents, as well as part-time and full-time staff members of

NAMCOL) through individual interviews, focus group sessions and mini-workshops.

An analysis of the current situation indicates that NAMCOL has been given a broad

mandate to provide a range of educational programmes and courses for those who cannot or

do not wish to study through conventional means. Since 1998, when NAMCOL took over

responsibility for programmes formerly provided by units in the Ministry of Education,

enrolments have increased by 61% and a range of new courses have been introduced,

though the Secondary Education Programme still accounts for 95% of all learners. The

College has moved away from its origins as a dual-mode institution and now delivers the

majority of its courses through a blended-learning approach. Learners receive printed self-

instructional materials, supplemented by multi-media and e-learning resources, and take

part in face-to-face tutorials, either on a weekly basis or during vacation workshops.

NAMCOL’s Management has also taken steps to address areas for improvement that were

identified in a similar review of the College’s roles and functions undertaken in 2005.

The consultations with stakeholders revealed a number of positive impressions of the

College. NAMCOL’s role in providing a safety net for learners who fail their junior or

senior secondary examinations or who cannot be accommodated in conventional schools is

well recognised and appreciated. Stakeholders also acknowledged the quality of the study

materials developed by NAMCOL and the College’s nation-wide presence through

approximately 100 tutorial centres around the country. Positive comments were also made

about the Pre-Entry to Tertiary Education Programme and the professional development

courses offered by the College. Over the last thirteen years, NAMCOL has proved itself to

be a trustworthy institution through the efficient delivery of services, the sound

management of its financial affairs and responsiveness to customer complaints.

Stakeholders also articulated a number of perceived shortcomings. A small number felt that

open and distance learning is an inferior system of education that has been foisted on the

Namibian people to make up for the failure to provide schooling for all. Other respondents

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argued that ODL is not suitable for Namibian youth, who lack the discipline and study skills

needed for self-study. Despite the fact that the number of contact sessions for SEP learners

were increased in 2008, the limited time available for tutorials was a wide-spread complaint

of learners, their parents, NAMCOL tutors and other stakeholders. Examples of the lack of

commitment and poor-quality teaching by the part-time tutors employed to facilitate contact

sessions for SEP learners were also aired. Stakeholders suggested that NAMCOL employ

permanent tutoring staff, acquire its own physical facilities, extend the range of secondary

subjects available and publicise its programmes more effectively. Problems with the

articulation between NAMCOL’s Professional Programmes and follow-on courses at the

University of Namibia were also mentioned by some respondents.

The researchers then carried out an analysis of the notions of educational quality implicit in

the comments made by stakeholders. One of NAMCOL’s main weaknesses in the minds of

respondents is the poor examination results achieved by SEP learners. Despite the fact that

the pass rates for both JSC and NSSCO learners with NAMCOL have improved significantly

over the last twelve years, they still lag behind those for students in conventional schools.

While many stakeholders acknowledged that the College takes in those who have not

performed well in the formal system, the possibility that these learners may achieve greater

learning gains than their school-based counterparts was not widely appreciated. NAMCOL

was also faulted for admitting large numbers of second-chance learners who are preparing

to re-sit examinations for subjects in which they performed poorly, even though the majority

of these re-sit candidates come from conventional schools. Stakeholders also use the amount

of learner-tutor/teacher contact to assess the quality of educational services and place a

lower value on NAMCOL programmes, even though SEP learners spend approximately the

same number of hours per week in class as those in mainstream education. A number of

specific suggestions were made by respondents for improving the College’s services, and

these are summarised on the following page.

The researchers then evaluated possible directions for NAMCOL’s future development that

arose in discussions with stakeholders. There was almost universal support for the College

to continue offering its Secondary Education Programme. However, future demand for

these courses will depend upon a number of factors, including: changing demographic

trends, a decline in the economic value of secondary qualifications, the MoE’s programme

for constructing new secondary schools and changes in ministerial policies on the re-

admission of Grade 10 failures and overage learners. Several options for expansion and

diversification were also considered. One possibility would be for NAMCOL to increase the

range of post-secondary and higher education courses it offer, though clarification is

required with respect to the College’s mandate and powers to do this. Alternatively, the

College could link up with post-literacy programmes to enable adults without any

educational qualifications to further their studies. Finally, the possibilities for NAMCOL to

move into the provision of Technical & Vocational Education and Training were explored.

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Specific suggestions were made by stakeholders for expansion in these different directions,

and these are summarised on the following page.

The national policy vision for Namibia seeks to create a ‘knowledge-based society’ by 2030,

and this will involve a radical transformation of the education system. However, this study

suggests that NAMCOL’s stakeholders have difficulty imagining how learning can take

place outside the traditional model of schooling. In an attempt to provide guidance for the

College’s development over the next twenty years, the research team reviewed a variety of

international trends that are shaping the way education is delivered. NAMCOL needs to

position itself to take advantage of the rapidly changing educational environment, and the

research team made several proposals for pilot projects that exploit emerging technologies

and e-learning methods. The need for a more aggressive advocacy and marketing strategy

to improve the College’s public image was also underscored in this study.

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Summary of Suggestions

Quality Improvement

Improve monitoring of tutorial centres

Employ a cadre of permanent staff for SEP tutorial centres

Professional development for NAMCOL tutors

Shorten the turn-around time for marking assignments

Motivate SEP learners

Foster greater discipline among SEP learners

Increase involvement by learners’ parents and families

Prevent absentees from sitting their exams

Provide career guidance and academic counselling for SEP learners

Retain and Improve NAMCOL’s Core Business

Closer integration of the SEP with conventional schools

Expand the PETE Programme

Develop NSSC Higher level subjects

Open up examination workshops to school-based learners

Develop e-learning materials for after-school study and exam preparation

Expand Upwards into Higher Education

Develop diploma and degree options for those who complete one of NAMCOL’s

Professional Programmes

Develop and offer new programmes at certificate, diploma and degree levels

Explore different arrangements for partnerships with other ODL institutions

Expand Downwards to link up with Post-Literacy Programmes

Develop and offer an Adult Bridging Year Programme

Deliver the Foundation Certificate (NQF Level 1)

Expand Sideways into Technical & Vocational Education and Training

Develop and offer TVET courses

Arrange for practical, hands-on training sessions through collaborations with VTCs

and/or COSDECs

Develop the Yetu Yama Centre to offer practical TVET training in various trades

Acquire self-instructional materials for TVET through arrangements with other ODL

providers

Pilot e-Learning Approaches

Convert existing study materials for delivery on a USB memory stick

Distribute study materials by preloading them on low-cost mobile devices

Introduce elements of asynchronous virtual tutoring for selected PP courses

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Table of Contents Acknowledgements...................................................................................................................... ii

Acronyms & Abbreviations used in this Report ............................................................................. ii

Executive Summary ...................................................................................................................... v

Summary of Suggestions ........................................................................................................... viii

Table of Contents ........................................................................................................................ ix

Introduction ................................................................................................................................ 1

Terms of Reference ................................................................................................................................. 2

Previous Research ................................................................................................................................... 2

Design of the Current Study .................................................................................................................... 3

Research Aims & Subsidiary Questions .................................................................................................. 3

Philosophical & Theoretical Orientation ................................................................................................. 4

Methodology & Methods of Data Collection .......................................................................................... 5

Limitations & Delimitations .................................................................................................................... 6

Structure of this Report .......................................................................................................................... 7

1. Policy Framework ................................................................................................................. 9

1.1 Education Policy in the First Decade after Independence (1990-2000) ................................... 10

1.2 Namibia Vision 2030 ................................................................................................................. 10

1.3 World Bank (2005) Report ........................................................................................................ 11

1.4 Education and Training Sector Improvement Programme ....................................................... 12

1.5 National Qualifications Framework .......................................................................................... 13

1.6 Draft National Policy on ODL in Namibia .................................................................................. 13

1.7 National Education Conference 2011 ....................................................................................... 14

2. Situational Analysis ............................................................................................................ 16

2.1 Evolution of NAMCOL ............................................................................................................... 16

2.2 Statutory Objectives, Functions and Powers of NAMCOL ........................................................ 17

2.3 Courses/Programmes Offered .................................................................................................. 18

2.4 Enrolments ................................................................................................................................ 21

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2.5 Modes of Delivery ..................................................................................................................... 23

2.6 Study Materials ......................................................................................................................... 24

2.7 Recommendations in Saide’s 2005 Report ............................................................................... 27

2.8 Section Summary ...................................................................................................................... 31

3. Feedback from Stakeholders ............................................................................................... 32

3.1 NAMCOL’s Perceived Successes ................................................................................................ 32

3.2 Deficiencies of the Mainstream Education System .................................................................. 35

3.3 Perceived Shortcomings of NAMCOL ........................................................................................ 37

4. Enhancing the Quality of NAMCOL Services ......................................................................... 41

4.1 Educational Provision and Quality Issues ................................................................................. 41

4.2 Suggested Strategies for Enhancing Quality ............................................................................. 48

5. Future Roles for NAMCOL ................................................................................................... 57

5.1 Retain and Improve NAMCOL’s Core Business – SEP ............................................................... 57

5.2 Expand upwards into Higher Education .................................................................................... 66

5.3 Expand Downwards to Link Up with Post-Literacy Programmes .............................................. 71

5.4 Expand sideways into TVET ....................................................................................................... 74

6. Transforming NAMCOL to meet the demands of 2030 ......................................................... 79

6.1 National Policy Vision ................................................................................................................ 79

6.2 Re-Imagining the Future of Education in Namibia .................................................................... 81

6.3 e-Learning ................................................................................................................................. 84

6.4 Changing Public Perceptions ..................................................................................................... 89

CONCLUSIONS ........................................................................................................................... 90

Appendix A: Summary of Suggestions ......................................................................................... 91

APPENDIX B: Persons Consulted ............................................................................................... 103

APPENDIX C: Documents Consulted .......................................................................................... 109

APPENDIX D: Questions for Interviews with MoE Officials ......................................................... 112

1

Introduction The Government of the Republic of Namibia (GRN) plans to transform the country into a

high-income society by re-orientating the economy towards technology, knowledge-creation

and innovation by 2030. At the same time, it is fully aware of the challenges that the nation

faces to produce the skilled human resources needed to achieve this noble goal. To address

some of these challenges, the Government launched a long term Education and Training

Sector Improvement Programme (ETSIP) in 2005. The ETSIP Strategic Plan envisages that

the government, in partnership with donors, the private sector and civil society

organisations, will:

Strengthen the immediate supply of middle- to high-level skilled labour to meet labour

market demands and support overall national development goals;

Improve the quality, effectiveness and efficiency of the general education and training

system;

Systematise knowledge creation and innovation to ensure adequate capacity for the

creation and application of knowledge to increase productivity;

Improve the effectiveness, quality, efficiency and development-relevance of the tertiary

education and training systems; and

Strengthen the policy, legal and institutional frameworks to support equitable access to

high quality and responsive adult learning.

The objectives of ETSIP have significant implications for services offered by the Namibian

College of Open Learning (NAMCOL) both now and in the future, particularly in relation to

the envisaged expansion of secondary education. ETSIP identifies the need for NAMCOL to

diversify its open and distance learning (ODL) programmes for adults and out-of-school

youth in line with the needs of the economy. In particular, recent changes in educational

policy that allow Grade 10 failures to repeat in the formal system are likely to have future

implications on enrolments for the College’s Secondary Education Programme (SEP).

NAMCOL is, therefore, under pressure to find new programmes that can both address

national development priorities and open up additional revenue streams.

The changing demands and priorities for NAMCOL must also be seen against the evolving

landscape for open and distance learning. In the twenty years since the idea for a national

distance education college in Namibia was first mooted, the practice of ODL has been

radically transformed around the world. Changes in the technical capacity, availability and

price structure of information and communications technologies (ICTs) have created a

global impetus towards e-learning that is transforming education at all levels. Regardless of

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whether this potential for extending e-learning opportunities to all parts of Namibia can be

realised in the immediate future, NAMCOL as an organisation must be prepared to

capitalise on such opportunities in the longer term.

Terms of Reference

It is in the light of these changes that NAMCOL decided to engage external researchers to

review its current and future roles and functions. The Terms of Reference required the

researchers to:

Compile a situational analysis of NAMCOL’s current roles and functions, as well

as the key issues affecting the delivery of its services in an effective manner;

Assess NAMCOL’s future roles with regard to the provision of alternative

secondary education and inform NAMCOL on future demand for this programme;

Assess the potential for diversification and propose possible areas for NAMCOL to

diversify its programmes and services;

Assess the implications such diversification would have on the College in terms of

capacity and costs;

Assess how NAMCOL can best respond to the policy objectives and strategic

priorities as spelt out in the ETSIP.

After a competitive tendering process, the South African Institute for Distance Education

(Saide) was engaged by the College to carry out this study. A team of researchers visited

Namibia on a number of occasions during July and August of 2011 to gather information

and to interview stakeholders. This was followed by a presentation of their preliminary

findings to a meeting of NAMCOL’s Executive Management Team in early September, after

which this report was finalised.

Previous Research

Two similar studies have been carried out for NAMCOL in the past. In October 1998,

shortly after the College was established as a semi-autonomous institution, a report on the

Market Options for NAMCOL was drafted to provide guidance on possible directions for its

development. This document included projections of the future demand for the Secondary

Education Programme, evaluations of several suggested areas for expansion, an analysis of

different models for inter-institutional collaboration in the delivery of ODL courses and

programmes, and some suggested avenues for funding NAMCOL’s expansion.1

In 2005, a research team from Saide and the International Research Foundation for Open

Learning (IRFOL) produced a review of NAMCOL’s roles and functions.2 This study

1 Ed Du Vivier, Ed, Market Options for NAMCOL, Consultancy Report (Katutura, NAMIBIA: NAMCOL, October

1998). 2 Ephraim Mmekoa and Terry Allsop, Review of the Role and Function of the Namibian College of Open Learning,

Consultancy Report (Johannesburg, South Africa: SAIDE, July 2005).

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involved gathering data from stakeholders through interviews and focus groups and

analysing policy documents. The consultants evaluated different strategies that the College

might adopt in relation to the goals articulated in the Strategic Plan for the first five-year

phase of ETSIP (2005-2010) and made recommendations for diversifying the range of

courses/programmes offered by NAMCOL. One shortcoming of this study was that it

provided little in the way of guidance for the College’s future development beyond 2010.

Design of the Current Study

This study comprised two components. The first of these was a policy and situational

analysis, which involved the following tasks:

Review of Literature

In order to familiarise themselves with trends in the development of education outside of

conventional classrooms and to gain a bird’s eye view of what is currently happening in

other ODL institutions, especially in the developing world, the researchers carried out an

extensive review of literature. An understanding of what comparable institutions have done

to address similar challenges is important for NAMCOL’s Management Team and Board of

Governors when considering the options for its future direction. Apart from identifying

international trends in ODL, the review of literature also revealed examples of best practice

in ODL in other developing contexts. These are highlighted in text boxes interspersed where

relevant in the body of this report.

Documentary Review

While educational institutions have a generic role to play irrespective of the contexts in

which they operate, they must also be responsive to their contextual imperatives. In

determining the future roles and functions of NAMCOL, it was important for the

researchers to identify those factors that are unique to the Namibian context. This phase of

the study involved reviewing key national policy documents on educational development in

general and the development of ODL in particular, as well as documents produced by

NAMCOL in response to national priorities. A bibliography of the documents consulted

during the course of this study is provided in Appendix C of this report.

The second major component of this study was empirical, comprising consultations with a

variety of stakeholders, as discussed below.

Research Aims & Subsidiary Questions

The empirical component involved gathering the perceptions of stakeholders in response to

four broad areas of enquiry:

What are NAMCOL’s current roles and functions, and how has the College

performed since its establishment in 1998?

How will the mainstream education system in Namibia develop over the 10-20

years?

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What roles and functions should NAMCOL adopt in this changing educational

environment?

How does the public perceive NAMCOL and how can the College’s standing with

the Namibian public be enhanced.

A number of supplementary questions were framed to guide discussions in each of the areas

outlined above, though these varied slightly depending upon which type of stakeholder was

involved. An example of the questions used in interviews with Ministry of Education

officials is included in Appendix D of this report.

Philosophical & Theoretical Orientation

Until the hegemony of Positivism was finally broken in the latter decades of the 20th

Century,3 few social researchers felt the need to explicate the philosophical and theoretical

perspectives underlying their work. Nevertheless, as the dust raised during the ‘paradigm

wars’ begins to settle, there has been an increasing tendency for scholars of the social

sciences to make explicit the assumptions that underpin any research they conduct in order

to:

understand the underlying logic behind the approaches adopted by other

researchers;

comprehend the relationships between key components;

avoid confusion when discussing these issues; and

recognise and defend their own positions in anticipation of scholarly critique.4

The problem is that various authors use the same terms in different ways or employ

different schema for classifying the key elements or building blocks of a researcher’s

philosophical orientation.5

Those responsible for this study were convinced that answers to the questions raised above

are an important source of data for planning the future direction of NAMCOL.

Respondents’ perceptions of the College were likely to reflect broader views that reside in

the minds, experiences and aspirations of the Namibian people. While some of them are

explicitly reflected in national policy discourse, to a very large extent they also exist

implicitly in people’s unexpressed opinions. Thus, in order to access these unarticulated

perceptions, the researchers sought to negotiate a way into the mind space of key

stakeholders in Namibia. The literature suggests that opinions on important social matters

3 Norman K Denzin and Yvonna S Lincoln, “The Discipline and Practice of Qualitative Research,” in The Sage

Handbook of Qualitative Research, vol. Introduction, Third Ed. (Thousand Oaks, California, USA: Sage Publications, 2005),

13–20. 4 Jonathan Grix, “Introducing Students to the Generic Terminology of Social Research,” Politics 22, no. 3 (2002): 176

& 184. 5 Michael Crotty, The Foundations of Social Research: Meaning and perspective in the research process (London, UK:

Sage Publications, 1998), 1–3.

5

like education are, in fact, socio-psychological constructions that form a complex,

interconnected whole.6 Accessing such socio-psychological constructions requires an

understanding of the context in which reality is constructed, for the context constitutes a

lens through which social senses perceive reality. The empirical component of this study

sought to understand people’s perceptions of NAMCOL within the constituted world of the

actors, as a collective and as individuals. Thus, divergent opinions of individual subjects

were just as valuable as convergent group opinions.

Given the epistemological grounding defined above, a qualitative approach was selected for

this component of the study. According to Strauss and Corbin, qualitative enquiry is ‚<

any kind of research that produces findings not arrived at by means of statistical procedures

or other means of quantification‛.7 Qualitative research is multi-method in focus, involving

an interpretive, naturalistic approach to its subject matter. For researchers, this means

studying phenomena in their natural settings, attempting to make sense of, or integrate,

phenomena in terms of the meanings people bring to them.8 The specific methods of data

collection for this study were, therefore, largely informed by the desire to enable individuals

and groups to articulate their views through formal, as well as informal, discussions.

Methodology & Methods of Data Collection

Interviews were the most appropriate method of getting information pertinent to the

research questions stated above. Interviews enabled researchers to get to know what people

think about particular issues. This method of data collection also made it possible to ‚read

between the lines‛ in order to access levels of meaning implied in how respondents reacted

to certain questions, something that could never have been achieved through quantitative

research methods. Another important strength of interviews was that they allowed the

researchers to infer meaning from some respondents’ silent voices. The interviews were

structured in different ways for different groups of stakeholders; one-to-one interviews,

focus group interviews and mini-workshop sessions.

One-to-One Interviews

The researchers chose to interview some stakeholders on a one-to-one basis mainly because

of the positions they occupy in the national education arena. Where a respondent will be

particularly influential in terms of the future direction of NAMCOL or has played a key role

in the College’s development, a one-on-one interview was considered the most appropriate

method of eliciting his/her individual views, opinions and concerns. Appendix B of this

report lists key stakeholders who were interviewed as individuals.

6 Maykut, P. and Morehouse, R. (1994) Beginning Qualitative Research: A Philosophical and Practical Guide. London:

Falmer. 7 Strauss,A. and Corbin, J (1990:17) Basics of qualitative research: Grounded theory procedures and techniques.

Newbury Park, Sage Publications. 8 Denzin, N. K. and Lincoln, Y. S. (1998: 3) Entering the field of qualitative research. In Denzin, N. K. and Lincoln, Y.

S. (eds.) Strategies of Qualitative Inquiry (pp.1- 34). Thousand Oaks, SAGE Publications

6

Focus Group Interviews

Focus group interviews are becoming increasingly popular in social science research as a

way to explore what individuals believe or feel as well as why they behave in the way they

do. Focus groups are ideally suited for exploring the complexity surrounding social issues

within the context of lived experience, and in ways that encourage participants to engage

positively with the research process. The focus group technique involves the use of in-depth

group interviews in which participants are selected because they are a purposive, although

not necessarily a representative, sample of a specific population. Discussion within the

group is not allowed to range freely, but rather is ‘focused’ by a facilitator on a given subject

or topic. For this study, participants were selected on the criteria that they would have

something to say on the topic, had similar socio-characteristics and would be comfortable

talking to the interviewer and each other on issues pertaining to education in general and to

NAMCOL services in particular.

This approach to selection relates to the concept of ‘Applicability’, in which subjects are

selected because of their knowledge of the study area. One of the distinct features of focus

group interviews is group dynamics; hence the type and range of data generated through

the social interaction of the group are often deeper and richer than those obtained from one-

to-one interviews.9 The uniqueness of a focus group is its ability to generate data based on

the synergy of the group interaction.10 Stakeholders who participated in focus group

interviews are listed in appendix B of this report.

Mini-Workshop Sessions

Where larger groups were involved, a more structured approach to the consultation process

was adopted, based on a workshop model. These workshops were held with groups that

involved persons who were already familiar with NAMCOL’s operations. A workshop

approach facilitated greater engagement and more in-depth sharing of ideas. Appendix B

also lists groups of stakeholders who were engaged through such mini-workshops.

Typically, one of the researchers began proceeding with a brief presentation of NAMCOL’s

history and educational issues in Namibia. Broad questions were then posed to focus the

discussion and respondents were asked to discuss these in small groups before reporting

back in a plenary session. The interactions between participants yielded both convergent

and divergent perceptions of the issues raised; as highlighted above, the researchers valued

both types of responses.

Limitations & Delimitations

Qualitative research is, by definition, not amenable to statistical analysis. Nevertheless, the

validity and reliability of data collected through qualitative methods can be very high,

9 Thomas L, MacMillan J, McColl E, Hale C & Bond S. (1995) cited in Rabiee, Fatemeh, (2004) Focus-group

interview and data analysis. Social Sciences in Health Vol. 1, pp. 655–660. 10 Green JM, Draper AK & Dowler EA (2003) cited in Rabiee, Fatemeh (2004).

7

depending upon the sampling method chosen. Unfortunately, the exigencies of this study

did not allow the researchers to use a probability-based sampling method. Instead, a

combination of approaches was employed, including:

purposive sampling, to target specific individual stakeholders who have had or are

likely to have a significant influence on NAMCOL, and

opportunity sampling, to engage with other respondents who were available during

the time the researchers were in Namibia.

Although every effort was made to elicit the views of the widest selection of stakeholders,

caution must be exercised when generalising from the findings of this study.

Structure of this Report

This report is structured in eight sections as follows:

The introductory section of the report defines and justifies the research methodology

selected for the study, given the terms of reference outlined above. The study was largely

qualitative in nature and a multi-method approach to data collection was adopted. This

section also brings out some of the limitations and delimitations of the study.

The following section summarises the policies that frame the future development of

NAMCOL. It examines relevant sections of Namibia Vision 2030, a document that provides a

long-term policy framework for the country’s future development. Other key documents are

also reviewed, including a report commissioned by the World Bank on human capital

development in Namibia, the Strategic Plan for the Education Sector Improvement

Programme, the National Qualifications Framework, the draft national policy on ODL in

Namibia and the proceedings of the National Education Conference held in June and July of

2011. Together, these reports and documents form the policy environment for the education

and training sector, within which NAMCOL must reposition itself when planning its future

direction.

Section 2 presents an analysis of NAMCOL’s current situation and status. It begins with a

brief historical overview of the origins of NAMCOL and the role it was to play in redressing

the legacy of apartheid and championing social and economic development in Namibia.

This is followed by an examination of the statutory objectives, functions and powers

assigned to the College in terms of its founding act. Details of the programmes and courses

currently offered by NAMCOL, enrolments since 1998, modes of delivery and study

materials available to learners are also given. The section also highlights some of the

recommendations that were made in previous research reports about NAMCOL’s services.

Such a situational analysis provides insights into some of the College’s strengths that it must

capitalise on in order to enhance its standing as a national and regional provider of high

quality ODL programmes.

8

The following section summarises the feedback received from the various stakeholders who

were consulted in this study. This feedback includes both the perceived successes and

shortcomings of the College. Stakeholders also gave their own views on key areas where

NAMCOL should improve, and the new areas of diversification that should be explored in

order to meet the demands of the Namibian economy.

Section 4 of this report focuses specifically on quality issues at NAMCOL, an aspect that

enjoyed a lot of debate during stakeholder meetings. A comparative analysis of the

performance of SEP learners vis-à-vis those studying in the formal school system is

presented in this section. Suggestions for improving the quality of NAMCOL’s services that

arose during the consultation process are also reviewed and evaluated.

The following section deals with the core objectives of this study, the future roles of

NAMCOL. All of the suggestions made by stakeholders are discussed and assessed under

four headings: retaining and improving NAMCOL’s core business (the Secondary Education

Programme), expanding into higher education, expanding downwards to link up with post-

literacy programmes, and expanding sideways into Technical & Vocational Education and

Training.

Section 6 explores international trends that will shape education systems in the future.

Within this highly dynamic technological and educational landscape, NAMCOL needs to

take a proactive approach to exploring the potential of e-learning to deliver its courses.

Suggestions are also made about how the College can improve its public image.

The concluding section offers the researchers’ personal observations on the future roles and

functions for NAMCOL.

9

1. Policy Framework Any review of NAMCOL’s roles and functions needs to be informed by the vision and goals

for the future. This section considers the broader context in Namibia and the policies

devised by Government to shape the nation’s development. Together, these constitute the

framework that guides the future direction of the College.

As one of the world’s youngest democracies, Namibia faces many challenges in forging

consensus on its future development. When Namibia achieved its independence in 1990, it

was one of the most unequal societies in the world, a result of decades of apartheid rule.

Although it is classified as a lower middle income country because of its wealth of natural

resources, income distribution is still highly skewed in favour of the white minority. The

2003/2004 Household Income and Expenditure Survey found that the richest ten per cent of

the population account for almost half of total income in Namibia, while the remaining

ninety per cent make do with the other half. 11 Seven years ago, over a quarter of Namibians

were living on less than N$ 9.00 per day.12

The Government’s attempts to overcome these challenges have been hampered by the global

economic slowdown and a drop in revenues from the Southern Africa Customs Union.

Unemployment has risen from 31% in 2001 to over 50% today.13,14 In response to the

immediate crisis of unemployment, the Government has launched the Targeted Intervention

Programme for Employment and Economic Growth (TIPEEG), which aims to create over

100,000 direct and indirect job opportunities over a three-year period. Nevertheless, the

prospect of achieving full employment in the longer term remains doubtful, and there will

still be a need for programmes to develop entrepreneurial skills and support the creation of

SMEs for many years to come.

A second major factor that impedes Namibia’s development is the high prevalence of

HIV/AIDS. In 2009, the estimated incidence among those aged 15 to 49 years was 13.1%.15

11 National Planning Commission, Central Bureau of Statistics, Namibia Household Income & Expenditure Survey,

2003/04, Preliminary Report (Windhoek, NAMIBIA: NPC, CBS, March 2006), Table 6.8, p. 38. 12 The poverty index was recalculated in 2008 using the Cost of Basic Needs approach and data from the 2003/04

Namibia Household Income and Expenditure Survey. New classifications were fixed as follows:

Households where the level of consumption was less than N$ 262.45 monthly per capita were classified as „Poor‟.

This group comprised 27.6% of the total population.

Of those in the „Poor‟ category, a sub-set were classified as „Severely Poor‟ with consumption levels of less than N$

184.56 monthly per capita. Those living in severe poverty comprised 13.8% of the nation‟s total population in

2003/2004. Central Bureau of Statistics, A Review of Poverty and Inequality in Namibia (Windhoek: National

Planning Commission, October 2008), 6–7. 13 National Planning Commission, Central Bureau of Statistics, 2001 National Population & Housing Census, Final

Report (Windhoek, NAMIBIA: NPC, CBS, July 2003), 41. 14 National Planning Commission, Targeted Intervention Program for Employment and Economic Growth (TIPEEG)

(Windhoek: National Planning Commission, 2011), 4, see also p. 18. 15 UNICEF website (updated 2 March 2010) Info by Country. Electronic document accessed on 18 July 2011 at:

http://www.unicef.org/infobycountry/namibia_statistics.html#76

10

Although the scale of the HIV/AIDS pandemic in Namibia is not as bad as in many of its

neighbours, it still has the seventh highest estimated incidence in the world.16 Programmes

to raise awareness appear to be having some impact in terms of lowering the rate of new

infections, while many of those suffering from the disease can now avail of ARV treatment.

Nevertheless, looking after the needs of large numbers of orphans and vulnerable children

(OVCs) makes considerable demands on scarce resources.

1.1 Education Policy in the First Decade after Independence (1990-2000)

Since Independence, education has been seen as a key mechanism for redressing the legacy

of apartheid. Not only is the education system expected to ensure equality of opportunity

for all Namibians, but it is also critically important for supporting economic growth and

reducing poverty. In 1993 the Ministry of Education launched its development brief,

entitled Towards Education for All, which set four major goals for the sector: access, equity,

quality and democracy. This policy has paid off, with almost 97% of children aged 7 to 16

years studying in conventional schools,17 a doubling of participation in tertiary education, a

twelve-fold rise in enrolments for vocational and technical education, and an adult literacy

rate of almost 89% by 2010.18

It was in this context that the Namibian College of Open Learning was conceived to enable

those who had been denied the opportunity to attend post-primary school to complete their

secondary education. Existing programmes of distance education and afternoon classes

were reorganised as a separate unit within the Ministry of Basic Education and Culture as a

first step towards the establishment of NAMCOL as a statutory body under the direction of

its own Board of Governors. The transition was completed on the 1st of April 1998, when the

College took over responsibility for these services in terms of the NAMCOL Act [Act no. 1 of

1997].

1.2 Namibia Vision 2030

In 2004, after consultations with all sectors of Namibian society to identify the people’s

aspirations and concerns, the President launched Namibia Vision 2030. This document

provides a long-term policy framework based on a broad consensus on the nation’s future

development. Over the next two decades, the Government aims to create a society that

aspires to economic prosperity for all through rapid industrialisation of the economy, as

well as peace and political stability through racial and community harmony.19 Of particular

16 UNAIDS, Report on the Global AIDS Epidemic (UNAIDS, 2010), 178–207, Annex 1,

http://www.unaids.org/globalreport/Global_report.htm. 17 Ministry of Education, EMIS [Education Management Information System], Education Statistics, 2010 (Windhoek:

MoE, May 2011), Table 28.. 18 GRN, Education and Training Sector Improvement Programme. Planning for a Learning Nation – Strategic Plan for

ETSIP (2005-2020). Windhoek: GRN, February 2005, page 7. 19 Office of the President, Namibian Vision 2030: Policy Framework for Long-Term National Development, Summary

(Windhoek, NAMIBIA: Office of the President, 2004), 15–18.

11

relevance to this study is the goal of transforming Namibia into a knowledge-based society,

by developing its human resources through equitable access to a world-class education and

training system, integrating ICTs in education and the wider community, using the latest

technology to increase productivity and building institutional capacity in science and

technology.20

The Namibia Vision 2030 document predicted that the labour market demand for school-

leavers with academic secondary education qualifications would decline after 2010. For this

reason, it proposes ‚a deliberate strategy to reduce the number of people who enter the

labour market in this category‛.21 Instead, the document makes a convincing argument for

re-orienting the education and training system so that it can produce greater numbers of

workers with technical and vocational qualifications.

1.3 World Bank (2005) Report

Between 1997 and 2003, an average of 9% of GDP and 25% of Government expenditure was

devoted to the education and training sector. Given the massive public investment, concern

began to be expressed about whether the country was receiving value for money.22 A series

of background studies was commissioned by the World Bank, culminating with the

publication of a comprehensive report on Namibia Human Capital and Knowledge Development

for Economic Growth with Equity in 2005.23 These studies highlighted weaknesses of the

education and training sector – in terms of poor quality, low internal efficiency, inequalities

in the allocation of resources and low economic relevance – which limit its capacity to

contribute to national development goals of knowledge creation and innovation.

One of the more controversial recommendations in the 2005 World Bank report was that

NAMCOL should abandon its role as a provider of secondary education for out-of-school

youths and that they should be reintegrated into the formal education system. The World

Bank consultants argued that it would be more cost-effective to improve the quality of

secondary education in conventional classrooms; this would allow NAMCOL to be re-

orientated to provide lifelong learning opportunities for adults. ‚NAMCOL can then serve

as an important vehicle for adult and continuing education, rather than a costly

prolongation of secondary schooling‛.24

20 Ibid., pp. 29-34. 21 Ibid., p. 66. 22 For example, in the National Plan of Action to promote Education for All, the concept of „efficiency‟ was added to

the goals of access, equity, quality and democracy, which had guided the development of the education and training sector

since Independence. See GRN, Education for All (EFA) – National Plan of Action, 2001 – 2015. Windhoek: UNESCO,

UNDP, UNICEF & UNFPA, page 3. 23 Marope, Mmantsetsa Toka. Namibia Human Capital and Knowledge Development for Economic Growth with

Equity, Africa Region Human Development Working Paper Series – No.84. New York: The World Bank, February 2005. 24 Mmantsetsa Toka Marope, Namibia Human Capital and Knowledge Development for Economic Growth with Equity,

Africa Human Development Series (New York, NY, USA: The World Bank, February 2005), para. 6.32, p. 84.

12

Unfortunately, the report prepared for the World Bank contained numerous inaccuracies,

oversights, misrepresentations and errors regarding the unit costs and cost-effectiveness of

NAMCOL, though these have been comprehensively rebutted by Rumble and Koul.25 The

unit cost to the State of providing education through NAMCOL was found to be between

23-99% of the amount spent on educating learners in conventional secondary schools,

depending upon what categories of expenditure are included and how equivalency is

calculated.26 Nevertheless, the recommendations in the World Bank report have continued

to influence the opinions of some decision-makers towards the College and the services it

provides.

1.4 Education and Training Sector Improvement Programme

In response to the challenges identified in Namibia Vision 2030 and the World Bank report,

the Government devised a comprehensive framework – the Education and Training Sector

Improvement Programme (ETSIP) – to strengthen strategic planning and monitoring of

outcomes. The strategic plan for the first five-year phase of ETSIP focused on improving the

quality and effectiveness of the education system, enhancing its internal efficiency,

redressing persistent inequities and ensuring that what young people learn is relevant to the

world outside the school walls.

The ETSIP plan for 2005-2010 recognised the potential of open and distance learning (ODL)

to expand access to senior secondary education. It also acknowledged NAMCOL’s

contribution to the nation’s development by offering a complementary system of education

for out-of-school youth and hard-to-reach groups. The ETSIP Strategic Plan also envisaged a

role for the College in creating and supporting a system of lifelong learning outside the

conventional classroom.

ETSIP has been supported by the adoption of a Medium-Term Expenditure Framework

(MTEF) for budgeting and a Performance and Efficiency Management Programme (PEMP),

which link the provision of resources with concrete performance targets for all ministries.

Various mechanisms have also been put in place to facilitate consultation between GRN and

its international development partners on progress by the sector in meeting the ETSIP goals

and targets.

25 Greville Rumble and Badri N. Koul, Open Schooling for Secondary & Higher Secondary Education: Costs and

effectiveness in India and Namibia, Consultancy Report (Vancouver, BC, Canada: Commonwealth of Learning, 2007), 221–

231. 26 Ibid., 250–251, Table 7.4; Du Vivier, Ed, Financing NAMCOL into the Future: A study of the College’s efficiency,

cost-effectiveness, fee structure and funding formula, Short-Term Consultancy (Katutura, NAMIBIA: NAMCOL, March 27,

2007), 25, Table 1.6.

13

1.5 National Qualifications Framework

Potentially the most important development in Namibia’s education and training sector in

recent years was the finalisation of the National Qualifications Framework (NQF), which

was promulgated in 2006. The NQF was intended to create some consistency in the naming

of qualifications awarded by different bodies and to facilitate both vertical and horizontal

articulation between the education and training systems. The NQF is conventionally

represented as a ladder with ten steps or levels that indicate the relative value of

qualifications from the most basic certificate (Level 1) to a Doctoral Degree (Level 10) (see

Figure 1.1 at right). Once the

Framework is fully implemented by

all education and training providers

in Namibia, learners should be able to

move back and forth between the

different systems and climb the

qualifications ladder, based on

recognition for prior learning and

credit for any studies they completed

for previous awards.

Unfortunately, however, the

traditional divide between general (or

academic) education and technical &

vocational education and training

(TVET) still persists. The Namibia

Examination, Assessment and Certification Board (NEACB) retains control over general

education qualifications for school-based learners, including the JSC, NSSCO and NSSCH

awards. Currently efforts are underway to harmonise these qualifications with the NQF.

The founding acts for both UNAM and PoN empower them to make their own awards,

while the National Council for Higher Education (NCHE) is the regulatory body for

academic awards at post-secondary level. Because of this division of responsibilities and

statutory powers, full articulation between the different systems and awards has yet to be

achieved in Namibia.

1.6 Draft National Policy on ODL in Namibia

The Namibian Open Learning Network (NOLNet) Trust was established in 2001 to promote

joint planning and collaboration between publicly-funded ODL institutions. Five years later,

Cabinet assigned NOLNet the task of consulting with stakeholders and developing a

National Policy for Open and Distance Learning (ODL) in Namibia. With support from the

Commonwealth of Learning, a series of seminars was held in October 2007 and a draft

document was produced the following month. However, it proved difficult to forge

Figure 1.1 – National Qualifications Framework

N Q F L E V E L S

10 D E G R E E S

Doctoral Degree

9 D I P L O M A S

Master’s Degree

8 C E R T F I C A T E S

Honours Bachelor Degree Professional Bachelor Degree

7 Ordinary (3-Year) Bachelor’s Degree

6 HE Diploma

5 HE Certificate

4 Grade 12 Certificate

3 Grade 10 Certificate

2 Upper Primary Adult Upper Primary

1 Lower Primary

14

consensus on the optimal institutional configuration for the future development of the ODL

sub-sector in Namibia. Some members of the NOLNet contact group felt that existing

structures for the provision of ODL should be strengthened and developed. Others believed

that they should be consolidated into a single institution, provisionally referred to as the

Open University of Namibia (OUN). The latter proposal envisaged the transformation of

NAMCOL into an expanded and better-resourced OUN.

In order to investigate the costs and potential benefits of these two options, the NOLNet

Board of Trustees directed that an external consultant be commissioned to carry out a study

of the costs and potential benefits of the two options. The consultant’s report27

recommended retaining the status quo, with specific measures for enhancing inter-

institutional collaboration and building local capacity to deliver high-quality ODL

programmes. These findings were further debated within NOLNet’s structures and the

report, along with the trustees’ recommendations, was forwarded to the Minister of

Education for a decision. As yet, the National Policy on ODL has not been finalised by

Cabinet.

1.7 National Education Conference 2011

From the 27th of June to the 1st of July 2011, a National Education Conference (NEC 2011) was

convened to review the successes and shortcomings of the sector and to shape plans for the

second stage of ETSIP. The theme of the Conference was the Collective Delivery on the

Education Promise: Improving the education system for quality learning outcomes and quality of life.

Participants at NEC 2011 had to choose between a number of different break-away groups,

depending upon their main area of interest. Although the conference proceedings and its

recommendations have yet to be made public, working documents were made available to

the Saide team to inform the current study. The break-away group that considered ways of

enhancing Namibia’s system for lifelong learning argued that ODL has a critical role to play

and made the following recommendations:

The draft National Policy on ODL in Namibia needs to be finalized by Cabinet as a

matter of urgency. Once this has been done, it is hoped that additional funding can

be made available for such programmes as a means of expanding lifelong learning

(LLL) opportunities. In this context, consideration should be given to modifying the

rules of the Government’s Student Loan Scheme to enable those pursuing higher

education courses at a distance to apply for funding.

ODL providers and the Ministry need to develop advocacy strategies to promote

acceptance of ODL as capable of delivering education that is of the same, or even

better, quality than that provided through traditional methods.

27 Ed Du Vivier, Open & Distance Learning in Namibia: Options for the Future, Consultancy (Windhoek: Namibian

Open Learning Network (NOLNet) Trust, January 26, 2009).

15

The learning resources produced by NAMCOL (paper-based, multi-media and

digital) should be made available in all schools in order to enhance quality and

equity in the formal education system. This can be particularly important for

subjects such as English Language, where expertise at school level is currently

lacking. Such resources can also be invaluable in catering for children with different

learning styles or those with disabilities. There would also be advantages if those

engaged in home schooling could avail of these resources.

Both curricula and pedagogies need to be reconsidered in order to maximise the

potential for ICTs in education. Simply using new technologies to replicate

traditional approaches to teaching and learning is not effective.

The Ministry should review its policies to facilitate cross enrolment so that learners

in conventional schools can study some subjects with NAMCOL.

There is a need for ODL courses to be available at lower levels in the education

system, for example, to bridge the gap between the Adult Upper Primary Education

programme offered by the Directorate of Adult Education and NAMCOL’s Junior

Secondary Certificate courses.

Additional community-based learning resource centres should be used to support

ODL students. Consideration should be given to hiring retired educators to support

users.

16

2. Situational Analysis In this section, an analysis of the evolution and current status of NAMCOL is done. The

programmes offered, modes of delivery used and enrolment trends are reported and

analysed. The section also highlights some of recommendations made about NAMCOL’s

services in previous reports. This analysis provides insights into the strengths and

weaknesses of the College’s existing operations, as well as suggesting opportunities that can

be exploited as NAMCOL repositions itself in the national and regional educational markets.

2.1 Evolution of NAMCOL

NAMCOL has its roots in the education programmes provided by the Namibian Extension

Unit to exiles in Zambia and other frontline states prior to 1990. During the process of

transforming and restructuring the national education system in the years following

Independence, these programmes were taken over by two directorates within the Ministry’s

Department of Culture and Lifelong Learning, each using a different mode of delivery. The

Directorate of Adult Continuing Education (DACE) organised afternoon and evening classes

for large numbers of young people who needed to re-sit their examinations or who could

not be accommodated in conventional schools. The Directorate of Distance Education &

Educational Broadcasting (DEEB) offered correspondence courses for those who wished to

upgrade their qualifications but who could not attend regular classes.

Shortly after Namibia achieved its independence the then Minister of Education, the Right

Honourable Nahas Angula, set up a working group to investigate the feasibility of

establishing a dedicated distance education institution for the nation. This group

recommended the creation of a college that could provide a high quality alternative to the

conventional schooling system, as well as addressing the nation’s human resource

development needs through a number of professional training programmes. It was

intended that the new body exploit innovative methods of open and distance learning to

bring education to the people in all parts of the country.

An Interim Development Board was appointed and the process of drafting legislation to

establish the college on a statutory footing was begun. In 1996, DACE and DEEB were

amalgamated into a single directorate of the Ministry in order to facilitate the transfer of

staff and assets to the new institution. In 1997 the Namibian College of Open Learning Act

was passed by Parliament [Act No. 1 of 1997] and was promulgated in the Government

Gazette later that same year. However, the College only became fully operational at the

beginning of the following financial year (April 2008), when it assumed full responsibility

for out-of-school secondary education programmes previously provided by the Ministry.

17

2.2 Statutory Objectives, Functions and Powers of NAMCOL

NAMCOL has a broad mandate to offer a diverse range of education and training

programmes and services. In terms of Section 4 of the NAMCOL Act, as amended by the

State-Owned Enterprises Governance Act [Act No. 2 of 2006], the College’s objectives are:

(a) to contribute towards the social and economic development of Namibia by upgrading

the educational level of adults and out-of-school youths-

(i) through programmes of open learning;

(ii) by designing, developing and offering programmes to address the diverse

educational needs of such adults and out-of-school youths;

(iii) by providing opportunities for adults and out-of-school youths to upgrade

their professional and vocational skills, as well as their level of general

education, to attain economic self-improvement and managerial skills for the

sound management of, inter alia, rural societies and non-governmental

organisations;

(b) to broaden access to education by establishing and maintaining tutorial centres in the

various regions of Namibia for those Namibians who have been deprived of formal

education or vocational training, or who are too old or, for other reasons, are unable to

engage in conventional, school-based education;

(c) to create opportunities for open learning through the use of modern instructional

techniques, including, but not limited to, the media and utilisation of technological

equipment;

(d) to provide guidance and counselling services to those seeking admission to

programmes of open learning, as well as to learners already involved in such

programmes;

(e) to provide an effective collegial governance structure that encourages active

participation by all its constituents and reflects the collective input of such

constituents;

(f) to co-ordinate with other bodies, institutions, organizations and interest groups in

order to facilitate co-operation and encourage an inter-disciplinary and multi-

disciplinary approach to open learning; and

(g) to seek and promote co-operation with regional and international institutions

providing education.

18

Section 5 of the Act notes that ‚the functions of NAMCOL shall be to achieve its objectives

with the means at its disposal‛ and then goes on to list certain powers that have been

granted to the College in order to fulfil its mandate. Although this section contains a general

provision to the effect that the College may ‚< do anything that is necessary or conducive

to the attainment of the objects of NAMCOL <‛, it is important to note that no power to

award diplomas, degrees or other educational qualifications is listed here. The only mention

of qualifications comes in Section 18 of the Act, which reads as follows:-

(1) NAMCOL may offer such training programmes and courses as it may deem necessary to

prepare learners to attain the standard of proficiency in examinations or other tests arranged,

controlled and conducted-

(a) by NAMCOL; or

(b) by bodies other than NAMCOL, whether such bodies are situated in Namibia or not.

(2) NAMCOL shall not confer a certificate of proficiency upon any learner unless such learner

has-

(a) attained the necessary standard of proficiency in an examination or other test: and

(b) satisfied such other requirements as the Board or the body in question as contemplated

in paragraph (b) of subsection (1) may determine.

In terms of the letter of the law, NAMCOL is empowered only to award ‚certificates of

proficiency‛, though it is possible to interpret this term in different ways.

2.3 Courses/Programmes Offered

When it first became fully operational, NAMCOL offered only a limited range of

programmes, but this has expanded considerably over the last thirteen years. Currently, the

College enrols learners for the following programmes and courses:

2.3.1 Secondary Education Programme

Since Independence, NAMCOL (and its predecessor units in the Ministry of Education) has

run a Secondary Education Programme (SEP, previously known as the Alternative

Secondary Education Programme). The SEP provides learning opportunities for adults who

were unable to complete their schooling, as well as for young people who cannot be

accommodated in formal schools. Courses are offered at two levels:

Junior Secondary Certificate

Currently, those who wish to prepare for the JSC examination can choose from among

seventeen different subjects at this level. Although the courses available through NAMCOL

nominally cover the full curriculum for the junior or lower cycle of secondary education

(Grades 8 – 10), the materials focus primarily on the syllabus for the final year.

19

Senior Secondary Certificate

Throughout most of the 1990s, NAMCOL offered courses based on the Cape syllabus for

Standard 10 in order to facilitate those learners who had passed several subjects and wanted

to complete the full certificate before it was phased out. In 1998 the College introduced

courses to prepare learners for the International General Certificate of Secondary Education

(IGCSE) examination, in line with the new curriculum that had been adopted in

conventional schools. NAMCOL made use of study materials developed in collaboration

with the University of Cambridge Local Examinations Syndicate (UCLES, which

subsequently changed its name to Cambridge International Examinations). In January 2006,

the IGCSE syllabus was replaced by a new, locally-developed curriculum for the Namibian

Senior Secondary Certificate, and NAMCOL began offering NSSC courses the following

year. Currently, learners who register with the College can choose from nineteen subjects at

Ordinary level, which comprehensively cover the curriculum for both Grade 11 and Grade

12.

All of the SEP courses offered by NAMCOL follow exactly the same syllabuses used in

conventional school classrooms. The College’s learners also take exactly the same

examinations, which are set, administered and marked by the MoE’s Directorate of National

Examinations and Assessment (DNEA).

2.3.2 Other Programmes of General Education

Pre-Entry to Tertiary Education Programme

In addition to the SEP, NAMCOL offers second-level top-up courses at its centres in

Katutura and Ongwediva for those who wish to gain entry to an institution of higher

education. The College won a competitive tender to provide a Pre-Entry to Tertiary

Education (PETE) Programme for up to 100 learners during 2008/09, and a second tender

was subsequently awarded to NAMCOL for the year 2009/10. In the absence of further

tenders for such bridging programmes, NAMCOL decided to continue offering the PETE in

2011 without additional funding from the State. Those registered for the PETE Programme

study four academic subjects at NSSCO level – English L2, Mathematics, Biology and

Physical Science – and are also provided with opportunities to work through computer-

assisted learning materials for a basic computer course.

2.3.3 Professional Programmes

In addition to the SEP and other general education courses, NAMCOL offers a range of post-

secondary certificate and diploma courses to develop the knowledge and skills required for

entry and advancement in a number of professional disciplines.

Certificate in Education for Development (CED)

This course was originally devised to provide professional qualifications for workers

engaged by the Directorate of Adult Basic Education as part of the National Literacy

20

Programme in Namibia (NLPN). It was subsequently revised to meet the needs of

agricultural extension workers, health educators, project managers and others working in

non-formal education or community development with government ministries, NGOs or

private-sector bodies.

Commonwealth Diploma in Youth Development Work (CYP)

This course was developed in response to the demand from the Ministry of Youth, NGOs,

community and church bodies for professional training of those working with young

people. The CYP aims to provide learners with the practical skills they need to become

more effective youth workers and informal educators.

Certificate in Local Government Studies (CLGS)

The CLGS is a tailor-made course designed to build capacity for effective governance among

those who are pursuing a career in local government. It provides an overview of the

principles and practices of decentralised governance and aims to meet the needs of elected

office-bearers (regional and town councillors) as well as officials employed by local

authorities or regional offices of central government.

English Communication Course

In 2002, NAMCOL introduced an English Communication Course (ECC) to support adults

who wish to develop their skills in the national language either to improve their

employment prospects or to pursue further education. However, because of a decline in

enrolments, the course was subsequently discontinued. In 2009, the ECC was re-launched at

seven centres around Namibia and has attracted officials from local offices of a number of

government ministries, as well as workers in the private sector. Currently, there are 210

learners enrolled for this course.

Since 2010 a number of new professional programmes have become available, including:

Certificate in Business Management (CBM)

This course was designed to provide school-leavers and entrepreneurs with the knowledge

and skills required to set up and manage a small or medium enterprise. As well as studying

various business principles (marketing and sales, HR management, financial planning, and

operations management), participants are also required to develop a business plan that can

be used to solicit start-up capital.

Certificate in Early Childhood Development (CECD)

For many years, the Government has sought ways to extend access to structured

development programmes for pre-school children throughout Namibia. One major

constraint to achieving this goal is the lack of qualified ECD workers, and this course was

created to address that need. Currently, the course is only available at certificate level, but

plans are in place to extend this to enable those who successfully complete the CECD to

continue their studies towards a diploma.

21

Certificate in Community-based Work with Children and Youth (CWCY)

The CWCY was developed to address the professional development needs of volunteers and

other people who support and care for orphans and vulnerable children (OVCs) and youth

at risk as the result of poverty, conflict, displacement and/or the AIDS pandemic.

Diploma in Education for Development (DED)

The DED was introduced to provide opportunities for those who successfully complete the

CED to further their studies in non-formal education, community development and related

fields.

2.3.4 ICT Programmes/Courses

At present, the only ICT course offered by NAMCOL is the International Computer Driving

Licence (ICDL). This is an internationally-accredited qualification that certifies competency

in various computer applications from the popular MS Office suite. All learners begin with

four modules: basic concepts of IT, file management, word processing and Internet & e-mail.

When these are successfully completed, a starter certificate of proficiency is issued. Learners

can then proceed to the remaining three modules in the ICDL core syllabus. Those who

register for the ICDL can study at their own pace, using self-instructional materials at home,

at work or at one of NAMCOL’s Computer-Based Learning Centres (CBLCs).

2.3.5 Technical & Vocational Education and Training Programmes/Courses

To date, NAMCOL has had only a limited involvement in the TVET sub-sector. In 2009, the

College offered a course in Office Administration on a pilot basis for Grade 10 repeaters.

This course was part of the strategy devised by the Ministry of Education to provide places

for those coming out of Grade 10 who could not be accommodated in the formal school

system. Under the auspices of the Namibia Training Authority (NTA), NAMCOL enrolled

25 and 56 students for the Office Administration course at Ongwediva and Windhoek,

respectively. The course lasted one academic year and involved face-to-face classes in the

following subjects: Basic Office Skills, Record-Keeping, Customer Care, Computer Literacy

and Office Equipment. However, the evaluation of the pilot phase of the Office

Administration course recommended that the curriculum and programme be revised, and

NAMCOL decided not to offer the course again until this review has been completed.

2.4 Enrolments

Chart 2.1 below illustrates changes in the number of learners enrolled for studies with

NAMCOL (on a head count basis) over the last thirteen years since the College was

established as a semi-autonomous institution.28 Total student numbers have grown from

just under 20,000 in 1998 to over 32,600 in 2010. Although there has been a slight drop-off in

the number of learners registered for JSC courses in the current academic year, enrolments

have increased in all but one of the College’s other courses. Since 1998 roughly 180,000

28 The data used to generate this chart can be found in Table E.1 in Appendix E of this report.

22

Namibians have passed through NAMCOL (see Table E.1 in Appendix E of this report), and

this figure represents over 8% of the total population in the country. Several different

methods have been proposed for converting these head count figures to full-time equivalent

(FTE) student numbers,29 but no consensus has been reached on the most accurate and

reliable approach.

The SEP is clearly the College’s largest and most important programme, accounting for 95%

of all registered learners in the current academic year. Since Independence, enrolments for

secondary education programmes with NAMCOL and its predecessor units in the Ministry

have increased almost five-fold. Until recently, enrolments for the SEP were divided

roughly equally between those preparing for the JSC examination and those studying at

NSSCO level. However, beginning in 2008, JSC student numbers began to decline (see

discussion in Section 5.1 of this report), though enrolments for NSCCO courses have

continued to increase. In 2010, one in every three (33.1%) Namibians studying at senior

secondary level was registered with NAMCOL; the corresponding figure at junior

secondary level was 7.4% (see Table E.2 in Appendix E).

In recent years, the range of courses available through the College’s Professional Programme

has more than doubled. Despite this, enrolments at this level currently account for only

3.4% of total student numbers. The combined total of enrolments for the PETE and the

courses offered at NAMCOL’s CBLCs is less than two per cent of total student numbers.

29 Du Vivier, Ed, Financing NAMCOL into the Future: A study of the College’s efficiency, cost-effectiveness, fee

structure and funding formula, 16–23.

23

2.5 Modes of Delivery

When NAMCOL was originally established, it operated as a dual-mode institution because

the programmes it had inherited from the Ministry were offered in two distinctly different

forms. Learners could register for Face-to-Face tuition, which entitled them to attend

afternoon/evening classes several times per week, but they did not receive study materials

or avail of any other type of academic support. By way of contrast, those opting for the

Distance Education mode received printed study materials through the post, studied on their

own and submitted assignments for marking by correspondence tutors. The only

opportunities for DE students to avail of face-to-face academic support were workshops

scheduled twice per year during school vacations.

2.5.1 The Open Mode

In response to the shortcomings of both of these modes of delivery, a pilot project was

launched in two of Namibia’s political regions at the beginning of 1998. Students in the pilot

project areas received both printed study materials and face-to-face tutorials twice per week

in each subject, and their progress was monitored over the following years. During this

period, NAMCOL undertook a root-and-branch review of the way it delivered the SEP,

including broad consultations with stakeholders, as well as extensive market research with

the College’s learners and their parents. In line with the recommendations arising from this

review, NAMCOL introduced the Open Mode in January 2003.

The Open Mode represented a significant improvement compared to the service provided

prior to that time. All learners at secondary level were provided with:

a one-day (5 hours) orientation workshop,

a copy of NAMCOL’s Good Study Guide,

a full set of NAMCOL study guides and/or a textbook for each subject,

face-to-face tuition on a weekly basis or two vacation workshops per year

(intended for those who cannot attend regular weekly classes),

three assignments (set nationally, but marked by local tutors), and

access to self-supervised study sessions.30

Originally, ‘contact’ learners at both JSC and IGCSE/NSSCO level received two hours of

face-to-face tuition per week in each subject. In 2008, after consultations with the Ministry of

Education and the general public, NAMCOL increased the number of contact sessions for

JSC level learners to five one-hour tutorials per week in each subject, while those studying

for the NSSCO examinations could avail of three hours of face-to-face support from a tutor.

30 It could be argued that NAMCOL‟s ASEP still retains two modes of delivery, as learners who take part in weekly

tutorials are designated as „contact‟, while those who are only able to attend vacation workshops twice per year are referred

to as „non-contact‟ learners. However, in all other respects, the services received by both groups are the same, and the two

variations are administered as part of a unified programme.

24

2.5.2 Blended Learning

Most of NAMCOL’s other courses are delivered through a blended learning approach. Both

the PETE and the ECC are run along the same lines as the SEP, with an orientation

workshop, printed study materials (and audio-visual materials where available), tutor-

marked assignments and regular contact sessions, though the number of hours per week

differ from course to course. However, participants on the PETE Programme can avail of

other services, such as academic coaching, advice on study skills, supervised study halls and

mock examinations.

Those registered for one of the College’s Professional Programmes typically receive a set of

inputs similar to the SEP, but academic support tends to take place during vacation

workshops rather than weekly sessions.

Support has also been arranged for individual students with special educational needs.

Study materials have been converted to Braille for visually-impaired students and special

arrangements can be made for administering assignments and examinations.

2.5.3 Computer-Based Learning Centres

In 2001, NAMCOL launched a Computer-Based Learning Centre (CBLC) at the Yetu Yama

campus in Katutura, and a second CBLC was opened in Ongwediva in 2008. All candidates

registering for the ICDL (International Computer Driving License) automatically receive a

Skills Logbook as part of the programme, but the use of a training manual is optional

depending upon whether learners choose to pursue the Start or the Core Certificate.

NAMCOL’s ICDL is offered through a blended learning approach, which combines the

strengths of Computer-Based Training (CBT) with support from a facilitator. Technical

expertise and assistance are available during training sessions, which take place in groups

throughout the day according to a dedicated training schedule. The CBLCs are also used for

more conventional face-to-face training courses and workshops where learners need

opportunities for hands-on practice with computers.

2.6 Study Materials

2.6.1 Paper Study Guides

NAMCOL still relies heavily on self-instructional materials printed on paper to deliver

learning content. The study guides developed by the College for the SEP are universally

acknowledged to be of high quality, and they have been accepted for inclusion in the MoE’s

catalogue of textbooks approved for use in schools. As a result, the sale of these materials to

schools and to learners who are not registered with NAMCOL has increased dramatically

over the last five years and now represents a major source of income for the College.

25

2.6.2 Multi-Media and e-Learning Resources

The printed study materials are supplemented by additional resources in a number of

different media for some subjects. In recent years, NAMCOL has been involved in several

projects to expand the range of media used to deliver its courses.

Education Radio Project

The Education Radio Project is a joint initiative that is managed by NAMCOL on behalf of

the Ministry of Education and other NOLNet partners (UNAM, PoN, NIED and DAE).

Funding was made available through ETSIP to equip a professional recording studio at the

Yetu Yama Centre, where radio programmes are produced for broadcast on national and

local radio stations. Training sessions are organised on a regular basis so that staff from

partner institutions can plan and develop scripts for recording and production. Since its

inception in 2007, over three hundred programmes have been produced to support learners

registered for the SEP, and the NAMCOL staff members involved have won awards from

the Media Institute for Southern Africa (MISA) for excellence in the production of broadcast

content.31 In addition, a series of programmes have been produced to raise awareness about

HIV/AIDS.

Educational Broadcasting Project (Radio and Television) of the Ministry of Education

This project was initiated in April 2008 in response to a request from the Ministry of

Education to develop and broadcast a series of radio and television programmes as

additional support for Grade 10 learners in the country. This initiative is aimed at adding

value to the existing print-based materials issued to both NAMCOL learners and those in

mainstream education. Since its inception, over one hundred radio lessons have been

produced and subsequently broadcast on local and national radio stations. In addition,

seventy-seven video lessons have been recorded and broadcast on NBC TV and One Africa

Television. The TV broadcasts take place from August to October each year in order to

assist both NAMCOL learners and those in conventional schools to prepare for the

upcoming examinations.

A follow-up proposal was submitted to the Ministry of Education in order to secure

financial support to sustain the production of radio and video programmes until 2012. It is

hoped that NAMCOL can secure funding to continue these activities beyond next year.32

COL- Sponsored Multimedia Project

Between 2007 and 2009, the Commonwealth of Learning (COL) sponsored a project that

aimed to build capacity at NAMCOL to develop and deploy multimedia content for selected

Grade 10 and Grade 12 subjects. With assistance from the Mindset Trust in South Africa, the

College devised a strategy to guide multimedia content development initiatives over a three-

31 NAMCOL, Annual Report 2009/10 (Katutura, NAMIBIA: Namibian College of Open Learning, No Date), 22. 32 Ibid.

26

year period. A series of training interventions (both face-to-face and online) were provided

to support professional staff in NAMCOL’s Programmes and Materials Development

Division when planning and developing multimedia content.

Web-Based Learning Resources Development

Between 2005 and 2009, UNESCO provided funds for NAMCOL to develop a series of

online lessons in four subjects: JSC English L2 (5 lessons), JSC Life Science (7 lessons), JSC

Geography (5 lessons) and NSSCO English L2 (5 lessons). These resources have been

reproduced on CD/DVD and distributed to all NOLNet-affiliated centres with computer

facilities, where they can be used by NAMCOL learners as well as those from conventional

schools. To date, no research has been carried out on how these resources are used or what

the impact has been on the learning process, but this would provide fertile ground for

further investigation.

Open Educational Resources for Open Schools (OER4OS) Project

The COL OER4OS Project is yet another initiative involving both NAMCOL and the

Namibian Ministry of Education, as well as open schools in five other Commonwealth

countries. This project aims to develop and deploy free online content in a range of

secondary school subjects, in addition to building capacity among teachers in the effective

use of ICTs in education and creating supplementary materials for supporting learners.

Namibia was assigned responsibility for five Grade 10 subjects: English, Entrepreneurship,

Geography, Life Science and Physical Science. In partnership with the William and Flora

Hewitt Foundation, COL provided financial and technological support for the project, along

with a series of planning and training interventions. Initially, content was developed for

paper materials, followed by further development of multi-media and online resources. The

final stages of the project, including an evaluation, are currently taking place.33

2.6.3 SMS Text Messaging

A Short Message Sending system was installed at NAMCOL to enable staff to communicate

urgent or important information to tutors, learners and other stakeholders. Typically, the

facility is used to inform learners registered for different courses about assignment

deadlines, dates for examination workshops and examination schedules. Motivational

messages were also sent to NAMCOL learners prior to their final examinations. In addition

to these functions, other ODL institutions use SMS systems to survey students’ perceptions

and to provide supplementary learning resources,34 and there is scope for NAMCOL to

exploit the capacity of its bulk SMS system more intensively.

33 Ibid., 23–24. 34 SAIDE [South African Institute for Distance Education], Alice Barlow-Zambodla, and Fatima Adams, Using Mobile

Technology for Learner Support in Open Schooling: Project report for the Commonwealth of Learning, Final

(Johannesburg, South Africa: SAIDE, October 2008),

http://www.col.org/resources/publications/consultancies/Pages/mobileTechnology.aspx; Sanjaya Mishra, ed., Mobile

Technologies in Open Schools (Vancouver, BC, Canada: Commonwealth of Learning, 2009),

27

2.7 Recommendations in Saide’s 2005 Report

The previous review of NAMCOL’s Roles and Functions35 identified a number of issues at

NAMCOL that required attention or improvement, and suggested a number of priorities for

diversifying the range of courses it offers. No subsequent report on these issues would be

complete without reviewing NAMCOL’s progress in addressing these recommendations.

2.7.1 Suggested Areas for Improvement

The 2005 report by the team of researchers from Saide and IRFOL made six specific

recommendations for enhancing the quality of the College’s existing programmes and

services.36

Develop a media strategy to improve the image of NAMCOL

The recruitment of specialised staff to coordinate the College’s marketing and publicity has

had a positive impact on public perceptions of NAMCOL and the services it provides. In

addition, a system of awards and rewards has been devised to recognise the achievements of

the best-performing students, tutors and tutorial centres in each of the College’s

administrative regions. A national prize-giving ceremony was also organised for NAMCOL

learners with the highest marks in the country. However, some of the regional councillors

who took part in the consultations during this study felt that prizes should be awarded to

the best-performers in each political region to provide more opportunities for learners’

achievements to be celebrated.

Provide on-going professional development and training for tutors

Since 2005, a number of initiatives have been taken to provide additional support and

training activities for tutors, though it has not been possible to roll this out to all centres.

Nevertheless, the tutors consulted as part of the current study expressed appreciation for the

efforts that NAMCOL makes in this regard. Some said that it was the first subject-specific

in-service training they had ever received during their careers as teachers, and they

indicated that more professional development activities would be welcome.

Strengthen learner support systems

Although the 2005 review of NAMCOL’s roles and functions was undertaken after the

change-over to the Open Mode for the SEP, the authors felt that the College should do more

to provide on-going orientation, counselling and study skills development with learners.

However, it appears as if NAMCOL has done little to address these concerns for the SEP

generally, though experience with the PETE Programme might provide a useful model for

http://www.col.org/SiteCollectionDocuments/Mobile_Technologies_in_Open_Schools_web.pdf; F Khaddage, A Chonka,

and W Zhou, “E-Learning over mobile phone technology: Best practices and guidelines,” International Journal of

Interactive Mobile Technologies 3, no. 3 (July 2009): 55-58; Cambridge Distance Education Consultancy, Anne Gaskell, and

Roger Mills, Using Mobile Technology for Learner Support in Open Schooling: A report to the Commonwealth of Learning,

Industry Research (Cambridge, UK: Von Hugel Institute, St Edmund‟s College, February 2009),

http://www.col.org/SiteCollectionDocuments/Mobile_Technologies_FinalReport.pdf. 35 Mmekoa and Allsop, Review of the Role and Function of the Namibian College of Open Learning. 36 Ibid., 19–21.

28

extending such services. In addition, the Saide and IRFODL researchers recommended

increased involvement of parents in motivating SEP learners. However, NAMCOL officials

indicated that attempts to engage with parents tend to have minimal results, and this is an

on-going source of frustration.

Improve on the turn-around time for assignments

In October 2005, NAMCOL’s Monitoring & Evaluation Unit undertook a study of the turn-

around cycle for assignments (TACA) and found that it took an average of 40 days between

the due date and the time assignments were returned to students. A follow-up study in 2008

found that the average turn-around time had been reduced to 36 days on average, though

some learners received their marked assignments in 5 days, while a very small number had

to wait for over six months. Nevertheless, a small number of learners who took part in the

consultative workshops complained that the process still takes too long, while some tutors

felt that the time available to mark assignments was too short. This was reportedly due to

the concentration of assignments over a short period of time over the academic year, a

practice that overwhelms both learners and tutors.

Monitor tutor and learner absenteeism more closely

As discussed in Section 4.2.1 concerns are still being expressed about the failure of some

tutors to attend all of the contact sessions they have been contracted to teach and their lack

of diligence in performing their duties. The problem may well have worsened since 2008

because of the increase in the number of contact hours per week. As tutor absenteeism can

have a demoralising effect on learners, poor attendance by the latter may be understandable

in some circumstances. However, despite a recommendation by the Saide team that

NAMCOL devise a mechanism to compel learners attend contact sessions, nothing like this

has been put in place.

Complete the tracer study of former learners

Although the first tracer study of NAMCOL SEP learners was completed in 2007, there were

fewer respondents than anticipated and the results proved somewhat disappointing.37 A

second study to trace the educational and employment histories of former Grade 12 learners

with NAMCOL is currently being undertaken by another research team from Saide.

2.7.2 Implementation of Open Learning Principles

Although those responsible for drafting the NAMCOL Act may have viewed the term ‚open

learning‛ as merely a synonym for ‚distance education‛, these refer to distinct concepts.

Distance education was used for decades to refer to systems for delivering structured

learning experiences when the student and teacher/tutor are separated from each other in

time and/or space, though in recent years it has been largely displaced in the literature by

alternative terms. ‚Open learning‛, on the other hand, is generally understood to refer to a

37 Alicia Fentiman, Tracer Study of Former NAMCOL Learners, Research Report (Cambridge, UK: International

Research Foundation for Open Learning, February 2007).

29

philosophy or approach to education that seeks to remove all unnecessary barriers to

learning. The 2005 review of NAMCOL’s roles and functions outlined a number of open

learning principles and questioned whether the College was living up to these. In particular,

NAMCOL was implicitly criticised by the researchers from Saide and IRFOL for the

following issues:

Lack of Flexibility and Learner-Centredness in Contact Sessions

The study materials supplied to SEP learners facilitate interaction and enable them to work

independently at their own pace. However, for those who opt for the ‘contact’ mode of

study, the need to attend regular tutorial sessions reduces the flexibility of the programme.

The 2005 review also questioned whether these sessions focus on covering the course

syllabus, primarily through the use of teacher-centred approaches for transmitting content,

or respond to needs expressed by learners. The researchers also suggested that NAMCOL

put in place measures to allow SEP learners who signed up for the ‘non-contact’ mode of

study to take part in tutorials whenever they can. However, this would pose a number of

problems for planning, budgeting and management of tutorial centres.

Limited Recognition of Prior Learning

While those who register for the SEP can carry forward credit for any subjects they have

passed in previous examination sessions, the entry requirements for courses at this level are

quite restrictive because NAMCOL is not the examining body. Regulations approved by the

National Examinations, Assessment and Certification Board require candidates for the JSC

and NSSC examinations to have passed a cognate subject at a lower level. In order to avoid

situations where a learner is denied admission to an examination, NAMCOL has adopted

the same requirements for admission to its SEP courses. Although this may be viewed as an

unnecessary restriction, it is justifiable in order to ensure that learners have a reasonable

chance of success in the examination and do not waste time and money preparing for an

examination that they are unlikely to pass.

NAMCOL has taken a major initiative to open up access to its Professional Programmes by

devising a policy on the recognition of prior learning (RPL). Previously, those seeking

admission to these programmes were required to have a Grade 10 or Grade 12 Certificate in

addition to relevant experience, depending upon the programme. However, learners who

do not meet these academic requirements can now be considered for admission through the

procedures outlined in the College’s RPL policy. By eliminating this unnecessary barrier to

access, NAMCOL enables experienced persons who did not have the opportunity to

complete their secondary education to attain professional skills and qualifications.

30

2.7.3 Priorities for Diversification

The 2005 review also examined a number of options for NAMCOL to expand the market for

its existing courses and to diversify its range of programme offerings.38 The authors’ specific

recommendations are presented below in order of their priority.

Vocational Education

As outlined above, NAMCOL has made little progress in extending its course offerings to

address this aspect of its mandate. However, as discussed in Section 5.4 of this report,

critical issues constrain ODL institutions that wish to become involved in TVET. The 2005

report on NAMCOL’s roles and functions also recommended the development of courses to

prepare Grade 10 and Grade 12 completers for the ‘World of Work’. This is similar to the

suggestion in this report for the College to devise short courses for unemployed school-

leavers to develop marketable skills.

Expansion of ICTs at School Level

Plans for increased involvement by NAMCOL in this area were curtailed by the Tech/Na!

initiative, which developed a national strategy for ICTs in Education. Unfortunately, the

College was assigned only a marginal role in that process and funding for expanding ICTs at

school level has been channelled through other bodies. Nevertheless, progress in achieving

the targets in the Tech/Na! Implementation Plan has been slow, and there may be scope for

NAMCOL to take the initiative in this field.

Preparation for ECD Workers and Pre-Primary Carers

As outlined above, NAMCOL has introduced a certificate course for workers engaged in

early childhood development and pre-primary care. Plans are in place to extend this course

to Diploma level in the near future.

Expand Market for CED Course

Since 2005, enrolments for the CED course have almost tripled. In addition, NAMCOL now

offers its own Diploma in Education for Development course for those who wish to further

their studies in this field.

In-Service Education and Training for School Leadership and Whole-School Development

In collaboration with some of the Colleges of Education, foreign universities have begun

offering such courses through ODL methods in Namibia. As NAMCOL does not have any

expertise in this area nor has it developed self-instructional materials, it would be unwise to

compete with existing providers at this stage.

Bridging Courses for Grade 12 Completers

This recommendation has been realised through the PETE Programme.

38 Mmekoa and Allsop, Review of the Role and Function of the Namibian College of Open Learning, 35–41.

31

BETD In-Service Programme

In recent years, the provision of pre-service teacher education and training has been re-

structured in Namibia and the former Colleges of Education now form part of the Education

Faculty at UNAM. Arrangements were also made to transfer responsibility for the BETD In-

Service Programme from NIED to UNAM’s Centre for External Studies and the Faculty of

Education.

2.8 Section Summary

Since NAMCOL became fully operational in 1998, it has made significant strides in fulfilling

its mandate. Enrolments for the College’s Secondary Education Programme have increased

by over 60%, new professional programmes and specialised courses have been introduced,

and two CBLCs have been established. Learners can avail themselves of self-instructional

materials in a variety of media, as well as new forms of academic and administrative

support. NAMCOL has also made progress in terms of addressing shortcomings identified

in the 2005 review of its roles and functions, as well as ensuring that more Namibians can

access the learning opportunities it offers.

32

3. Feedback from Stakeholders The empirical component of this study involved discussions with a variety of stakeholders

to elicit their views. The first major theme that members of the Saide team explored in all of

these consultative sessions involved looking back at NAMCOL’s operations from the time it

became fully operational in 1998 to the present. Respondents were asked to reflect on the

College’s successes during that period, and then to articulate areas where improvement is

required. This section of the report summarises the views of stakeholders on these

important issues.

3.1 NAMCOL’s Perceived Successes

Some of the key positive perceptions of the College are discussed below:

The SEP as a Safety Net

As is the case in many other countries, there is a major choke point in the Namibian

education system between the final year of junior secondary school and the first year of

senior secondary. Over the last decade, fewer than half (between 32 – 45%) of the total

Grade 10 cohort (both school-based and with NAMCOL) have been accommodated at Grade

11 level in conventional schools.39 In 2010, almost 25,600 learners did not make the transition

from Grade 10 to the first year at a senior secondary school. Until recently, the Ministry’s

policy did not allow schools to re-admit learners who had failed one or more subjects at

Grade 10 or Grade 12 level except in exceptional circumstances. For those who wished to

complete their JSC or NSSC, the only option was to study with NAMCOL in order to re-sit

the examination.

The majority of learners who fail to obtain promotion to Grade 11 passed all their subjects in

the JSC examination but did not achieve the minimum number of points required to secure

admission to a senior secondary school. These individuals have the option of pursuing

studies with NAMCOL to prepare for the NSSC examination or applying for a limited

number of places at Vocational Training Centres. However, most of those who enrol with

NAMCOL at JSC level appear to be repeating the final year of the course in order to re-sit

the examination, hoping to upgrade their symbols/marks to the level required for re-entry to

a conventional school. Recent statistics suggest that a growing number of NAMCOL JSC

learners succeed in winning places for themselves in the first year (Grade 11) of the senior

cycle of secondary schooling.

Almost all of those consulted during the course of this study recognised the important role

that NAMCOL has played since its establishment as a provider of ‚second chance‛

education. The safety net that NAMCOL provides for those who have not experienced

success in the formal education system appears to be the dominant impression of the

39 See Table E.3 – Calculating Demand for NAMCOL Places in Appendix E of this report.

33

College’s current contribution to education in Namibia. As one respondent put it, ‚These

young people can become somebody someday‛. Without NAMCOL, young people who fail their

examinations or are pushed out of the formal education system face a very bleak future. The

opportunities available through the SEP not only restore hope for individuals, but they also

improve the internal economic efficiency of the education system by increasing the overall

output of successful Grade 10 and Grade 12 completers. The vignette in the box below

illustrates the impact that NAMCOL has had on the lives of those individuals who take part

in the SEP.

One of NAMCOL’s tutors expresses his appreciation

NAMCOL provides opportunities for many learners who fail in the formal schools system to have a

second chance. Many people have come to NAMCOL and improved their grades and gone to the

University of Namibia. I am here today because of NAMCOL; I failed in the formal school system

and came to NAMCOL. I studied hard and earned good passes at Grade 12 and then enrolled for a

degree at the University of Namibia. I passed my first degree with flying colours and proceeded to do

a Master’s degree. Here I am today, a teacher in the formal system as well as a NAMCOL tutor.

This was all because of NAMCOL. There are many other people who have been successful because of

NAMCOL.

A number of respondents also acknowledged that the SEP performs an important social and

political function by keeping young people off the streets. Education is perceived as one of

the main mechanisms for overcoming the injustices of apartheid and ensuring social equity.

In times of high unemployment the SEP is essential to enable youth to further their

education rather than sitting idle. NAMCOL’s programmes also serve to damp down public

discontent that might otherwise arise as a result of limited job opportunities in the formal

sector of the Namibian economy.

Relatively few respondents mentioned the role played by the SEP in providing another

pathway for those who could not find a place in Grade 11 in a conventional school to obtain

an NSSC (Grade 12) qualification. As discussed above, many SEP learners see NAMCOL

primarily as a place where they can go on a temporary basis in order to upgrade their

symbols and re-enter a conventional education institution at the next higher level. This view

appears to be shared by parents, MoE officials, political leaders and some tutors employed

by the College. While NAMCOL offers many learners a second chance, it also remains the

second choice for most of them.

High-Quality Study Materials

When asked about NAMCOL’s successes, the second most common response was the paper

study materials prepared for JSC and NSSCO courses. These were widely acknowledged to

be of high quality, which is evidenced by their popularity among learners in conventional

schools. The College’s self-study materials were seen as more learner-friendly than the

34

textbooks typically used in schools, which were criticised as being too teacher-centred. The

exam preparation booklets compiled by the College were also viewed by stakeholders as a

very useful addition to the range of resources available for all learners. By distributing these

materials more widely, NAMCOL has made a significant contribution to improving the

nation’s education system as a whole.

Although only a few respondents mentioned NAMCOL’s radio and television broadcasts, at

least some of those consulted felt that these resources are of very high quality and should be

distributed more widely through alternative media for asynchronous use. However, some

PETE learners felt that the television programmes are dull, do not appeal to teenagers and

do not add much value to learning processes. Tutors suggested that subjects like Biology

need to be supported through video resources containing demonstrations, animations and

simulations in order to make them more effective as teaching and learning tools.

Nation-Wide Presence

Another positive attribute of NAMCOL was its presence throughout the country, which is

unlike any other national education institution. In 2011, the SEP is being offered at

approximately 100 tutorial centres, which ensures a high level of access even for those living

in rural areas. Nevertheless, some respondents felt that more could and should be done to

extend NAMCOL’s reach and decentralise its services. Regional councillors, in particular,

felt that the College needs to increase its visibility at local level, with a centre or office in

each of the nation’s 107 constituencies.

PETE Programme

Relatively few of those consulted were familiar with the PETE Programme, but those who

knew about it had universally positive views of its impact. From the perspective of the

students who took part in the consultative workshops in Katutura and Ongwediva, the

PETE Programme has transformed their lives, not only by developing the knowledge and

skills required for further academic studies, but also by boosting their self-confidence and

enhancing their self-image. The quotations in the text box give some flavour of the impact

of the PETE programme on individual learners:

Some PETE learners speak about how the Programme has affected their lives:

It gives us hope. … This is not like any other institution out there. The tutors and other staff here

actually believe that we can make it, giving us hope that we do not normally find in our own

households. Just like support from our families, that is what we get here. … We get encouragement

from our tutors – positivity goes all around here.

We can work in a group; it’s like a family in that way. We work in a group to try to motivate one

another to understand that we have to work together hard in order to make it through.

35

I never ever passed Math in my life, I never liked the subject. But, since I have been attending classes

here, the motivational talks led me to start believing that I can actually do this. My examination

marks have been improving steadily. I was not even a ‘D’ student before, but now I find myself

becoming a ‘B’ student.

Last year I studied with NAMCOL, but I didn’t write the exam. Now that I’m here (PETE

Programme), I’m really looking forward to writing the exam … . It’s given me the courage to pull up

my socks and move forward.

Opportunities for Professional Development

When asked about NAMCOL’s contribution to meeting the nation’s human resource

development needs, at least some of those consulted appeared to be unaware of the

College’s Professional Programmes. Of those who were familiar with these offerings, the

majority felt that these courses were important in addressing skills deficits in specific areas

that were not being catered for by the publicly-funded higher education institutions. For

example, several respondents noted that NAMCOL was the first institution in Namibia to

offer a professional qualification in Youth Work. Others remarked that the College’s

professional programmes are well-designed to meet the needs of specific categories of

workers, providing them with the knowledge and skills that can be easily transferred to

their work context.

Trustworthiness

Finally, a number of stakeholders complimented NAMCOL on the integrity of its

management and leadership. Unlike so many other public-sector bodies, the College has

avoided any hint of scandal or corruption. Management regularly consults with

stakeholders and has also put in place mechanisms for responding to complaints from the

public. Although there are on-going concerns about the need to improve the examination

results of NAMCOL learners, the College appears to be well-managed and efficient in

delivering services to its learners. As a result, NAMCOL is developing a reputation as a

reliable and trustworthy institution.

3.2 Deficiencies of the Mainstream Education System

The 2005 review of NAMCOL’s roles and functions found that the College was perceived by

at least some stakeholders as a ‘dumping ground for learners who cannot succeed in the

formal senior secondary system’. At the same time, their informants were quick to

acknowledge that this situation was not of NAMCOL’s own making. Instead, it could be

ascribed to deficiencies in the formal education system, including the:

Lack of provision of quality early childhood development and pre-schooling;

Restricted opportunities for teachers to engage in on-going professional

development;

Ministerial policies restricting repetition; and a

36

Shortage of places in senior secondary schools.40

Although none of those consulted during the present study used the phrase ‘dumping

ground’, NAMCOL’s role in compensating for the shortcomings of the formal education

system was widely acknowledged. Feedback from respondents and from participants at

NEC 2011 highlighted serious deficiencies in the sector which have an impact on the

clientele the College has been given a mandate to serve, including some of the problems

identified five years earlier.

Despite a dramatic improvement in the provision of ECD, these services are not

available in many areas. Calls were made for integrating ECD with the formal

education system.

Although the quality of education available in most schools has improved, the

academic standards of Grade 12 graduates still leave much to be desired. In

particular, a majority of learners still have very limited competence in English and

Mathematics, primarily because these skills are in short supply in the teaching force.

Concerns were expressed that the existing school curriculum lacks relevance and

fails to prepare learners for the labour market. The break-away group for

mainstream education recommended the introduction of a vocational alternative to

the existing academic curriculum taught in schools.

A similar problem was identified in the higher education sub-sector. Because of

inadequate links between HE institutions and the labour market, many graduates

find that they do not have the skill sets required for the workplace.

Although government schools in Namibia are not allowed to charge fees, they do

collect money from learners through a levy towards a school development fund.

Such contributions are supposed to be voluntary and a waiver scheme is in place, but

it can be difficult to avail of this in practice. Participants at NEC 2011 expressed

strong support for the elimination of school development funds/fees, which act as a

barrier to equitable access.

Despite the ambitious targets in the National Policy on ICTs in education, concerns

were expressed about the slow pace of ICT roll-out to schools.

Although the problem of un- and under-qualified teachers has been largely

eliminated, devising an effective system of continuous professional development for

educators is essential to quality enhancement. Teachers need to update their

40 Mmekoa and Allsop, Review of the Role and Function of the Namibian College of Open Learning, 15.

37

knowledge and skills continuously, but the current model of cascaded training is

ineffective.

3.3 Perceived Shortcomings of NAMCOL

Those consulted during this study had much to say about the College’s failures, and many

of them talked at length about individual incidents where NAMCOL had not delivered the

level of service they expected. Although much of this evidence was anecdotal and may not,

therefore, be representative, it reflects the general discourse about the College and has an

impact on public perceptions of the institution. For this reason, the opinions expressed by

stakeholders, even when they are misinformed, need to be taken seriously.

ODL is an Inferior System

A small number of those consulted argued passionately that open and distance learning is

an inferior approach to delivering education and it would not be accepted anywhere in the

industrialised world. It appears as these respondents were thinking of densely-populated

areas, such as southern England or the East Coast of the United States, as a reference point

when making their comments. Clearly, these speakers were not familiar with the long

history of distance education in Australia or the mid-Western provinces of Canada, which

have settlement patterns closer to those in Namibia, or with the e-learning systems that are

being introduced at school level in most industrialised countries. Despite evidence to the

contrary, these respondents believe that NAMCOL is the embodiment of this sub-standard

system, which has been foisted on the Namibian people as a way of making up for

government’s failure to expand the formal education system.

These comments are resonant of the discourse of opposition politics, but they also reflect

how poorly informed Namibians are about alternatives to conventional schooling.

Stakeholders who were familiar with the practice of ODL noted that it is undervalued

because so much misinformation circulates in popular discourse. There also appear to be

some contradictions in public opinion about distance education institutions; whereas UNISA

programmes are highly valued, those provided by NAMCOL are not.

‘School for Failures’

As noted above, NAMCOL used to be viewed as an unwanted institution and a dumping

ground for failures from the formal education system. However, those consulted during the

course of this study conceded that this perception of NAMCOL is fading, as the College has

proved itself over the years to be capable of producing positive results. Nevertheless, a

very small number of respondents still articulated the view that NAMCOL is a school for

failures, citing anecdotal evidence of learners who repeated a subject year after year with the

College but were unable to pass or upgrade their symbols.

38

ODL Unsuitable for Namibian Youth

There is a widely-held view that open and distance learning is not a suitable system for

Namibian youth. Young people cannot be expected to have the motivation and self-

discipline needed for success in such a system, as they are still too immature. However,

when asked what age learners should be before enrolling with NAMCOL, most respondents

were unable to provide an answer. Many stakeholders acknowledged the importance of

parental supervision for SEP learners, but felt that most parents do not have the right ‘mind

set’ to support their children as much as they should. For this reason, a number of

respondents suggested that NAMCOL create a more structured environment at its centres,

with tutors taking attendance and notifying parents when their child is absent.

Time available for Tutorials is too Limited

The 2005 review of NAMCOL’s roles and functions reported that some stakeholders felt that

the time available for face-to-face contact with SEP tutors was too limited. Despite the

increased number of contact hours over the last three years, the team for the current study

confirmed that this is still a general complaint raised by a majority stakeholders. Because

those who register for the SEP have failed in the past, many respondents argued that they

need more support from a teacher rather than less. Learners registered for NSSCO level

studies with NAMCOL and their parents still want classes to be held daily, just as they are

in conventional schools. These comments demonstrate the extent to which the general

public cannot visualise how quality education might be offered outside conventional

arrangements.

Not enough Time to Cover the Syllabus

In addition, tutors complained that there was insufficient time for them to cover the entire

syllabus in the traditional didactic manner. These comments may reflect the fact that

learners registered for NSSCO courses with NAMCOL typically take a single year to prepare

for an examination that learners in schools cover over a two-year period. However, they

may also suggest a misunderstanding of the ODL approach, where self-instructional

materials have been designed to substitute for much of what takes place in conventional

classrooms. Ways of addressing this issue are discussed in sub-section 4.2.1 of this report.

Tutors pointed out that they need to be allowed sufficient time to mark assignments and

give feedback to learners before they write examinations. Currently this is difficult because

assignments are not evenly spread over the academic year. Apart from putting pressure on

markers this also puts undue pressure on learners.

Lack of Commitment from Tutors

Even though learners must travel long distances to attend a NAMCOL tutorial centre, it was

reported that tutors sometimes do not bother to show up for their scheduled classes. Even

when tutors do come to their classes, they are often unprepared. Many of those consulted

felt that NAMCOL tutors are over-worked; after teaching all morning they are simply too

39

tired to give their best to learners in the afternoons or evenings. This means that a lot of

time that learners spend at these centres is wasted, with an obvious impact on their

motivation.

One respondent also questioned whether NAMCOL is employing the right people to act as

part-time tutors. Many JSC learners with the College return to the same school where they

failed previously only to be tutored by the same teacher. NAMCOL needs to scrutinise each

teacher’s record of success with full-time learners before deciding to employ him/her as a

part-time tutor.

Restricted Range of Subjects

A small number of respondents complained of a mismatch between the subjects available at

a particular NAMCOL centre and those learners want to take. Currently the College’s

procedures allow for the creation of a class group in a particular SEP subject only if there are

sufficient learners to justify it and a qualified tutor is available. Inevitably, some potential

learners will not be able to enrol for all the subjects they wish through the ‘contact’ mode.

Nevertheless, most of the SEP subjects can also be studied through the ‘non-contact’ option.

For many years, the Directorate of National Examinations and Assessment has limited the

number of subjects candidates may register for if they are sitting the examination at a

particular level for the first-time, though re-sit candidates may enter for up to six subjects.

This is justified on the grounds that first-time candidates need to focus on fewer subjects in

order to have a reasonable chance of success in the examination. In order to avoid confusion

among its learners, NAMCOL has adopted the same rules when enrolling learners for the

SEP. However, some stakeholders felt that learners should be allowed to take up to six

subjects, regardless of whether they are first-time or re-sit candidates.

Problems of Articulation and Certification

Problems also surfaced with regard to articulation between some of NAMCOL’s

Professional Programmes and those offered at HE institutions. More than one respondent

reported that those who had completed the CLGS and decided to pursue higher level

studies at UNAM were not given full credit for the years they had completed at NAMCOL.

A related issue was the consolidation of subject certificates for part-time candidates who

complete the JSC or NSSCO over a number of years. Currently DNEA awards a series of

certificates to indicate the marks received for each examination sessions, but some

stakeholders wanted these to be consolidated into a single, combined certificate.

Affordability

Given the concerns expressed at NEC 2011 about the issue of school development fund

contributions and previous discussions about fees at NAMCOL, the researchers expected to

hear numerous complaints that the College’s courses are not affordable. However, only one

respondent argued that the cost per subject for the SEP is too high, with the result that some

40

potential learners are denied access. Others cannot afford to enrol for more than one or two

subjects per year, and this simply serves to prolong the time they spend in education. The

proposed solution to this problem is to seek higher levels of subsidy from the Government

or to increase the number of scholarships available.

A number of those consulted urged NAMCOL to adopt a pro-poor orientation for all its

programmes, in order to mobilise additional resources and avail of new streams of funding.

However, others felt that the issue of poverty is sometimes over-played in Namibia. Giving

people something for nothing simply devalues what you have to offer. In almost all cases,

parents will find the money to invest in the education of their children, if they see it as

something worthwhile.

NAMCOL needs its Own Full-Time Centres

Many of those consulted felt that the current arrangement under which NAMCOL makes

use of school buildings outside of normal school hours is unsatisfactory. Ministry of

Education officials in the Khomas Regional Office complained about inadequate

consultation when the College decides to open tutorial centres at schools under their

jurisdiction. There is also a serious problem of over-crowding at examination centres in

Windhoek when the MoE is obliged to find venues and furniture to accommodate

thousands of additional candidates from NAMCOL.

The general perception appears to be that the College needs to mature as an institution, and

this would involve having its own dedicated physical facilities in locations around the

country. At one of the consultative meetings, parents even suggested that NAMCOL should

build hostels for learners. If the College had its own premises, it could ensure that essential

facilities (especially photocopying) and teaching/learning equipment is available to benefit

its learners. Some regional councillors expressed an expectation that NAMCOL centres

should bring the latest technologies – electricity, computers, Internet access and cell phone

coverage – to remote rural areas where these services are not currently available.

Failure to Publicise its Programmes

In one of the focus group sessions with regional councillors, some articulated the view that

NAMCOL had failed in its mandate to publicise its programmes at local level. Regional

councillors need to be consulted regularly (at least once a year) and informed about the

College’s activities in their constituencies. Although the College has developed terms of

reference for NAMCOL Regional Advisory Committees (NAMRACs), these have yet to be

established. Several other stakeholders felt that NAMCOL should take a more aggressive

approach in marketing its services, and suggestions for this are discussed in Section 6 of this

report.

41

4. Enhancing the Quality of NAMCOL Services A number of stakeholders consulted in this study raised issues about the quality of the

courses and other services provided by NAMCOL. These perceptions are clearly based on

various factors, the most common of which are examination results, tutor-learner contact

time, subject re-sits and the quality of tutors. This section explores some of these

stakeholder views NAMCOL’s performance with respect to quality.

4.1 Educational Provision and Quality Issues

Investment in education is only worthwhile if the education provided is of good quality. Yet

what constitutes quality in education is something that is highly contested. There are

several different ways in which people judge the quality of education offered by a particular

institution or, indeed, by a wider national system.

4.1.1 The Examination Results Notion of Quality

Organisations like UNESCO use formal, standardised methods for measuring the quality of

education in countries around the world. These methods entail specially-designed

instruments to measure how well learners perform, in order to facilitate comparisons across

different cultures, contexts and systems. The tests devised as part of the SACMEQ initiative

are a typical example of such standardised measures. Standardised national examinations,

widely used in many countries, are generally accepted as ways of measuring educational

quality and, therefore, of comparing the performance of individual learners and of

institutions. Thus, stakeholders envisage quality as the value attached to good examination

results, while in some instances institutions are ranked on the basis of performance by their

students in public examinations.

In almost all the consultations that took place during this study, one of the main weaknesses

stakeholders pointed out was that the examination results of NAMCOL learners are not as

good as those of learners who study in conventional classrooms, especially at NSSCO

(Grade 12) level. The underlying assumption appears to be that the College’s learners

should perform as well as those in the formal school system. Or, put another way, the

distribution of symbols obtained in the examinations by candidates who prepared with

NAMCOL should not deviate significantly from those reported for full-time candidates who

studied in conventional classrooms. The actual data on examination performance by the

two groups is summarised in the charts below.

Chart 4.1 compares the performance of NAMCOL JSC learners with those in conventional

schools over the thirteen years since the College became fully operational as a semi-

autonomous institution. The uppermost line (with dark blue fill) shows the percentage of

subject entries from school-based learners that received a ‘G’ symbol or better in the terminal

examination for junior secondary education. The results for this group show a gradual, but

consistent, improvement over the period. The next line below it (with fill in lighter shade of

42

blue) indicates the pass rate for subject entries by NAMCOL learners. Although the results

achieved by the latter group show more variation from year to year, the performance of the

College’s learners has improved more rapidly than that of school-based candidates.

Although the pass rate for NAMCOL learners still lags behind that for students in

conventional classrooms, the trend is towards convergence.

The bottommost line (with cream-coloured fill) shows the percentage of NAMCOL subject

entries that were awarded a ‘D’ symbol or above, while the line just above it (reddish-brown

fill) illustrates the rate of better marks among candidates who prepared for the JSC

examination in conventional schools. Because the number of NAMCOL candidates who

achieve such marks is relatively low, the annual variation is greater. Nevertheless, while the

trend for school-based candidates shows steady upward progress, the results for learners

from NAMCOL display a fluctuating trend.

Chart 4.2 provides a similar comparison of results in the NSSCO/IGCSE examinations.

Again, the pass rate for NAMCOL learners has improved more rapidly than that for full-

time students in the formal education system over the period. If we look at percentages for

both groups who achieve a ‘D’ symbol or better, the line for school-based candidates

appears to have plateaued at around 40%. While the percentage of subject entries from

NAMCOL candidates that were awarded better marks is much lower, there is a definite and

sustained upward trend.

43

Nevertheless, the perception that NAMCOL learners do not perform as well as those who

study in conventional classrooms has been difficult to overcome. Even though almost all

stakeholders, including parents, acknowledged that the formal system creams off the most

successful learners while NAMCOL ‘rescues’ those who have had least success, this seems

only to reinforce negative perceptions of the College.

The most important conclusion that should be drawn from these charts is that, in spite of the

fact that NAMCOL takes in those who have not performed as well as their school-based

counterparts, a significant number of the College’s learners manage to pass. However, at

present we do not have sufficient data to conclude that the College adds greater value to the

education of learners that register for the SEP. A comparative study of learning gain among

NAMCOL learners and those in conventional schools is required in order to provide the

necessary data.

4.1.2 The Value-Added Concept of Quality

In most education systems, particularly in the developing world, parents and learners alike

attach a lot of quality value to examination results because this is often what gives them

access to further education or training, as well as to employment opportunities. However,

very little attention is paid to the amount of educational value an institution adds on for a

learner, even if the latter does not fare well in public examinations.

44

As discussed above, in Namibia the examination results of JSC and NSSCO learners are used

as the basis for judging the value of the education provided by NAMCOL compared to that

available in the formal schooling system. In doing so there is complete disregard for the type

of students the two systems are dealing with, although it is generally accepted that

NAMCOL caters for learners that do not do well in the formal system. This perception is, in

itself, acknowledgement that NAMCOL draws its learners from among those who, for

whatever reasons, perform poorly in the formal system. Time and again, respondents

pointed out that those who enrol for the SEP are not ‘stupid’ or ‘intellectually-challenged’.

Instead, their poor performance in examinations was the result of failures in the formal

education system, such as the lack of books or other learning resources, absent or

incompetent teachers, inadequate physical facilities or other shortcomings.

In many ways the expectation that NAMCOL learners will perform as well as their school-

based counterparts is unrealistic. Because those who enrol for the College’s courses have

been pushed out of the formal system on account of poor performance, they tend to start

with lower levels of knowledge and skills. Consider the following example: one learner

receives an ‘E’ symbol in the JSC English L2 examination and is promoted to Grade 11 at a

senior secondary school. Her classmate manages to achieve only an ‘F’ symbol in the same

examination and does not qualify for a place in a conventional school. If the second learner

wants to further her education, her only option is to register with NAMCOL. When both

learners receive a ‘C’ symbol in the NSSCO examination, which one has achieved the greater

learning gain? Clearly the answer is the NAMCOL learner, since she started from a lower

level than her school-based counterpart, as illustrated in Figure 4.3 below.

G C D F E B A Symbol Awarded in the Exam

School-Based

NAMCOL

LEARNER 1

LEARNER 2

Figure 4.3 – Comparative Learning Gain in Different Education Systems

45

Asked if they would send their children to NAMCOL instead of formal schools, parents in

the Oshana region responded that they would prefer to send children who perform badly to

NAMCOL. Thus, the notion of quality as passing examinations with high marks appears to

be the dominant construct in the mind of the average Namibian parent. Ministry officials,

political leaders, tutors and even NAMCOL learners themselves all seem to accept

examination results as the standard against which the quality of the College’s services

should be measured. While the above scenario is a typical illustration of NAMCOL’s

contribution, getting the public to appreciate the role the College plays in enhancing

educational quality and equity is an important challenge to address in Namibia’s national

education discourse.

4.1.3 High Numbers of Re-Sit Candidates as an Indicator of Poor Quality

NAMCOL also comes in for criticism because many of its learners are preparing to re-sit

their examinations for a second or subsequent time. Although both the old Cape system for

Standard 10 and the UCLES system for IGCSE made provision for supplementary

examinations, these were discontinued in 2006. Currently, candidates who wish to re-sit one

or more subjects at JSC or NSSC level must wait a full year before the next available

examination date. NEACB regulations also require that they be enrolled with a recognised

educational institution in order to prepare themselves adequately. The underlying

assumption appears to be that all re-sit candidates are failures, and that, by accepting them

on the SEP, NAMCOL has lowered its standards.

From the beginning, a majority of the learners who enrolled with NAMCOL and its

predecessor units in the Ministry did so because they wanted to re-sit for either the junior or

senior secondary examinations. However, the percentage of re-sit candidates who prepare

for the examination with the College has continued to increase over time. In 2007, re-sit

candidates reportedly accounted for 93% of JSC subject enrolments and 82% of subject

enrolments at NSSCO level.41 However, as Table 4.1 below indicates, the problem of re-sit

candidates is one that is caused largely by conventional schools, which the College is

expected to resolve on their behalf.

41 Rumble and Koul, Open Schooling for Secondary & Higher Secondary Education: Costs and effectiveness in India

and Namibia, 161, Table 5.15.

46

TABLE 4.1 - Number of Re-Sit Subject Enrolments with NAMCOL, 2007

2006 2007 2006 2007

Number of Ungraded Subject Entries

- Full-Time (School-Based) Candidates 20,214 5,486

- Part-Time (NAMCOL) Candidates 3,256 3,385

Total Ungraded Subject Entries 23,470 8,871

As a percentage of Ungraded Subject Entries

- Full-Time (School-Based) Candidates 86.1% 61.8%

- Part-Time (NAMCOL) Candidates 13.9% 38.2%

Total Number of Subject Enrolments with NAMCOL 28,964 27,627

Percentage of Re-Sit Subject Enrolments with NAMCOL 93.0% 82.0%

Percentage of NAMCOL Subject Enrolments arising from

'Failures' in the previous year81.0% 32.1%

Percentage of Re-Sit Subject Enrolments to Upgrade

Symbols12.0% 49.9%

JSC Level NSSCO Level

Source: NAMCOL Statistical Digest 2007, Table 3.1, p. 12; Table 3.2, p. 15; & 'Year at a Glance', p.1.

The figures in the table above show the number of subject entries which received an

‘Ungraded’ mark in the JSC and NSSCO examinations, on the assumption that nearly all of

these candidates will be sufficiently motivated to attempt the subject again the following

year. Those who received an ‘Incomplete’ mark are not included, as many of them are likely

to have given up hope of passing and abandoned their studies. In 2007 (the year before the

Ministry changed its policy on allowing JSC failures to repeat Grade 10 at school), over four

out of every five (81.0%) JSC subject enrolments with NAMCOL were likely to have arisen

from failures the previous year. However, the vast majority (86.1%) of these ‘failures’ were

accounted for by Grade 10 learners from conventional schools. In 2007, relatively few

candidates re-sat the JSC examination in order to upgrade their symbols in the hope of

securing a Grade 11 place in a formal school the following year.

At NSSCO level, failures in the previous year’s examination account for only about one in

three (32.1%) of subject enrolments with NAMCOL, but school-based candidates represent

six out of every ten (61.8%) learners who failed. If these learners had not been afforded an

opportunity to repeat the year with NAMCOL, they would have left the education system

without a senior secondary certificate. The lack of educational qualifications has serious

consequences for learners, in terms of reduced prospects for employment in the formal

sector of the economy. Moreover, the investment made by the Namibian State in educating

unqualified school leavers to this level would have been ‘wasted’, at least in economic terms.

These figures appear to support the perception of stakeholders that NAMCOL plays a

critically important role as a safety net to catch those who fall out of the formal education

system.

This analysis also reveals that almost half of all subject enrolments with NAMCOL at senior

secondary level come from learners who are preparing to re-sit the NSSCO examination in

47

order to upgrade their symbols. Presumably these learners do so in the hope of meeting the

minimum requirements for entry to an institution of higher education. This is an indication

of the demand for Grade 12 top-up programmes or bridging courses such as the PETE.

Given the differences between these two groups, it would be advisable for NAMCOL to

make a distinction in future between re-sit candidates, who are preparing to attempt the

examination again in order to pass, and those who have already passed but seek to upgrade

their symbols.

4.1.4 Quality as the Amount of Learner-Tutor Contact

Over the last few years, concern about the high number of young people leaving school after

Grade 10 without any formal qualifications has led to calls for special programmes to

address their needs. A separate allocation of N$ 12.5 million was made available in 2008 for

NAMCOL to provide additional face-to-face tuition for candidates re-sitting the JSC

examination. The number of contact sessions was increased from two per week to five per

week for all NAMCOL learners at JSC level, and this arrangement has continued for the last

four years. At the same time, the College also extended the number of tutorials for its

NSCCO learners from two to three weekly sessions (each lasting one hour) per subject. The

assumption was that increased face-to-face contact with a tutor would result in a significant

improvement in learning outcomes.

Unfortunately, the results for part-time candidates in the JSC examination since that time do

not bear this out. Although there was a marginal increase in the percentage of NAMCOL

learners achieving a ‘G’ (Graded) symbol or better between 2007 and 2008, the pass rate

declined in the following two years. Likewise, the proportion of NAMCOL learners who

obtained better marks (a ‘D’ symbol or above) increased by almost nine percentage points in

the first year of the pilot programme, but fell back again in the following two years. In 2010,

the proportion of NAMCOL candidates who received better marks in the JSC examination

was the lowest it has been in the last seven years. Little or no change is apparent in the

results for NAMCOL’s NSSCO learners since the introduction of increased contact hours in

2008.

Moreover, this development raises questions as to whether the SEP at this level can still be

classified as open and distance learning provision. Those registered with NAMCOL for JSC

level studies now have more face-to-face contact time with a tutor/teacher (5 x one-hour

sessions per subject per week) than those studying in conventional schools (5 x 40-minute

periods per subject per week). Providing this level of tutorial support also has significant

financial implications that may undermine the sustainability of the Programme in the long

term. Moreover, despite the increased number of contact hours, some learners and parents

consulted during this study still sought more face-to-face support.

48

4.2 Suggested Strategies for Enhancing Quality

In all the discussions with stakeholders, questions were posed to elicit their views on the

quality of NAMCOL’s services. Apart from getting a sense of how well NAMCOL is faring

in terms of perceived quality, the questions were also meant to encourage respondents to

express their opinions of what the College needs to do in order to improve its services.

Several suggestions were made and these have been classified into three main categories for

the further discussion below:

4.2.1 Improving Quality of Service Delivery Processes

One of the acknowledged strengths of NAMCOL is its ability to reach learners irrespective

of where they are in the country, including those living in rural or remote areas. This is

achieved through a network of approximately 100 tutorial centres spread throughout the

country. Currently, NAMCOL makes use of existing schools and other facilities for its

tutorial centres, while serving teachers are normally employed by the College on a part-time

basis to staff these centres. The number of such centres tends to vary from year to year

depending upon demand. In 2010, one hundred and thirty-six educators were employed on

contract as Enrolment Officers in different locations. If sufficient learners register with

NAMCOL at a particular venue to justify the establishment of a tutorial centre, then the

Enrolment Officer is usually appointed as Head of Centre (HoC) for the remainder of the

academic year. In addition, the College employed 1,149 teachers as part-time tutors during

2010.

Improve Monitoring of Tutorial Centres

During the meetings with stakeholders, complaints were raised about absenteeism among

tutors; as a result, NAMCOL learners are not receiving all of the services they have been

promised in the College’s prospectus. The obvious starting point for addressing this

shortcoming is to improve the system for monitoring what actually takes place at centres. At

its most basic, this would involve requiring tutors to sign in when they arrive at the centre

and sign out again before they leave. It may also be desirable for the HoC to keep records of

the times when part-time tutors are actually in class, as a means of ensuring minimum

professional standards. A more elaborate monitoring system would involve observing how

tutors facilitate their face-to-face sessions to help identify the type of support they need in

order to develop additional competencies. Unannounced inspection visits by staff from

NAMCOL’s Head or Regional Offices may also be necessary to ensure that the monitoring

records kept at each centre are a true representation of the teaching and learning activities

that take place and are in line with national standards.

The point raised in the foregoing paragraph regarding the quality of tutoring is particularly

critical given the prior experiences of learners who register with NAMCOL. Because these

learners have performed poorly in the past, they need more support if they are to realise

their academic aspirations. Unless the services offered at tutorial centres are of high quality,

49

NAMCOL will only succeed in providing physical and not epistemic access. While physical

access can be monitored relatively easily, it does not ensure that what takes place at these

centres is of high quality. Epistemic access, on the other hand, refers to the type of provision

that enables learners to achieve high quality educational gains and leads to academic

success. This type of provision is much more difficult to monitor.

Employing a Cadre of Permanent Staff for NAMCOL Centres

One of the most frequent suggestions from stakeholders for improving the SEP is that

NAMCOL employ its own tutors, rather than using serving teachers on a part-time basis.

Although these are frequently referred to as ‘full-time tutors’, this is a misnomer. Because

the College’s tutorial centres typically operate for only three to four hours per day, the job

does not justify hiring full-time staff. Instead, the proposal would involve employing a

separate cadre of HoCs and tutors on a permanent, part-time basis. Some of those consulted

suggested that unemployed or retired teachers could be engaged to perform these tasks.

The arguments for and against this proposal have been aired in depth in a draft submission

prepared by one of the authors of this study for NAMCOL. Nevertheless, they are repeated

here in the hope that finality can be achieved on this issue. Employing a separate cadre of

permanent, part-time staff would solve a number of short-comings of the existing system:

An unintended consequence of the increase in contact hours since 2008 has been the

additional demands on these part-time staff. Concerns were expressed by principals

and MoE officials that, by devoting so much time to NAMCOL learners, teachers are

neglecting their responsibilities to full-time students in schools. The College’s own

monitoring system has thrown up complaints of absenteeism, lack of commitment

and exhaustion among teachers who act as tutors on top of their full-time jobs in

schools.

Because the new tutors and HoCs would not have to split their working hours

between supporting NAMCOL learners and other teaching duties, they would have

additional time to devote to preparing for classes and marking homework or other

project activities. It is also expected that they will be able to give more attention to

individual learners outside of class, which should have a positive impact on learner

motivation and performance.

NAMCOL managers also hope that this arrangement will enable them to exercise

greater control over HoCs and tutors. Under the existing arrangements, some of

these temporary part-time staff do not take directives from the College seriously, as

NAMCOL is not their primary employer.

Nevertheless, there are also a number of potential drawbacks to the proposed arrangement:

50

Currently teachers who are employed by NAMCOL make use of their own

classrooms when providing tutorials outside of normal school hours. Likewise, the

principal, the vice-principal, a head of department or a senior teacher at a particular

school is normally appointed as the HoC when NAMCOL opens a tutorial centre at

the same venue. This arrangement ensures continuity in terms of the school’s rules,

operating procedures and supervisory relationships. If the College were to employ

outsiders to staff its tutorial centres, the goodwill of the school’s administrators and

teachers may be lost and potential conflict may arise over use of the facilities.

The arrangement currently in operation enables NAMCOL to be flexible in terms of

what subjects are offered at each centre. If sufficient learners register for a particular

subject to justify the creation of a class group, a qualified teacher will be recruited to

tutor that subject. However, if the College employs permanent staff, they can

provide tutorial and academic support only in the subjects they are qualified to

teach. As a result, the range of subjects available at NAMCOL centres is likely to be

restricted, with small-entry subjects losing out. This means that the College would

no longer be able to offer JSC Accounting and Mathematics, NSSCO Accounting and

Economics or most of the First Language options at both levels.

Likewise, the proposed arrangements are likely to restrict the number of places

where tutorial centres are established. Each year NAMCOL registers learners at over

130 Enrolment Points, all of which can become tutorial centres if a sufficient number

of learners sign up. Because of fluctuations in learner numbers from year to year, the

College may have a centre at a particular location one year but not the next.

However, if permanent staff are employed at each tutorial centre, NAMCOL will no

longer have the same flexibility because it will not be possible to change an

employee’s work location at such short notice. As a result, the College’s

management will need to limit the number of tuition centres to areas where they can

assure that permanent staff are fully utilised from year to year.

The proposed arrangement would also make it more difficult for NAMCOL to ‘weed

out’ tutors who do not perform according to expectations or who are not committed

to their work. Currently, where cases such as this have been identified, the current

contract is allowed to lapse and the non-performing tutor or HoC is not re-employed

the following year. However, if these individuals are permanent employees of the

College, the procedures that must be followed for their removal are much more

onerous and time-consuming.

Retired teachers are also likely to have more health problems than younger teachers.

Under the proposed arrangements, they would be entitled to the same number of

days of paid sick leave as NAMCOL’s other permanent employees.

51

The feasibility of employing permanent, part-time staff at all of NAMCOL’s tutorial centres

is also doubtful for the following reasons:

Although the current situation with regard to the supply and demand for qualified

teachers in Namibia is uncertain, it was not possible for the Saide research team to

obtain any detailed information on the number of unemployed or retired teachers.

Nevertheless, it is doubtful whether there are enough people in these categories to

meet NAMCOL’s current requirements. However, it is clear that such teachers are

not evenly distributed throughout the country. Thus, while it may be possible to

staff the College’s tutorial centres in larger urban areas with unemployed or retired

teachers, there is a perennial shortage of qualified candidates in rural areas. If

NAMCOL were to employ permanent staff at places outside the main centres of

population, it would need to make provision for housing them.

Perhaps the most compelling argument against this proposal is economic. The

projected cost of employing a comparable number of HoCs and tutors on a

permanent, part-time basis would be six times higher than what NAMCOL currently

spends to provide these services.

Clearly, this suggestion is a significant departure from the conventions in ODL institutions,

which rely heavily on part-time staff facilities as a way of keeping costs down. While this

system might prove popular with parents and some learners, it is not sustainable.

In the long-term, the problem of providing regular tutorial support to learners in remote

areas may be solved through the increased use of ICTs. Virtual tutoring is already available

in some parts of the world with cheaper and more reliable Internet connectivity, but it may

take a number of years before this becomes possible in Namibia.

A possible compromise proposal would be to employ a small cadre of permanent, full-time

master tutors at NAMCOL’s Regional and Sub-Regional Offices to play a role similar to

Subject Advisors/Inspectors in the formal school system. The primary function of these

master tutors would be to improve the quality of tutoring in a limited range of target

subjects, by monitoring the performance of SEP tutors at centres, facilitating additional

training/professional development activities, compiling and preparing additional

teaching/learning resources (such as student worksheets and homework activities), as well

as developing and promoting the increased use of e-learning materials. Even though a new

staff structure was approved and implemented in April 2011, it may still be possible to

include this suggestion as part of the restructuring process.42 Whatever model is adopted

should take into account the need to ensure that access to the College’s courses is not

curtailed because they are no longer affordable for economically-disadvantaged learners.

42 Ephraim Mhlanga, Tony Mays, and Christine Randell, Towards an Enabling Staffing Structure at NAMCOL: A

review of the staffing structure in an ODL institution, Consultancy Report (SAIDE, October 2010).

52

Professional Development for NAMCOL Tutors

There are persistent complaints from tutors employed by the College that they do not have

sufficient time to cover the entire syllabus for their courses. As noted earlier, these

comments suggest a misunderstanding of the ODL approach, where self-instructional

materials have been designed to substitute for much of what takes place in conventional

classrooms. Thus, NAMCOL tutors are not expected to perform the same function as

traditional teachers. Instead of transmitting information, tutors are trained to support

independent learning by coaching individual learners, enabling them to make best use of the

study materials, helping them to assess their own progress and sustaining their motivation.

Nevertheless, it seems as if at least some of the part-time staff employed by the College do

not appreciate the difference between the roles and functions of traditional teachers and

those that should be carried out by ODL tutors. If this distinction is not obvious to

NAMCOL tutors, it is unlikely to be understood by learners or their parents.

For this reason, some stakeholders suggested that NAMCOL tutors be provided with

additional inputs and support to continue their professional development. Over the years,

the College has used a variety of different models to provide training for its part-time staff,

but these have met with limited success. Face-to-face workshops are popular among staff,

particularly where they are paid to attend, but the costs tend to be prohibitive. A distance

education course was developed for tutors and other part-time staff, but the materials that

were distributed do not seem to have been widely used. Most of the efforts to date have

focused on the differences between teaching in a conventional classroom and tutoring ODL

learners, but whenever NAMCOL has provided subject-specific training, this has been well

received.

Providing continuous professional development through ODL methods is probably the most

cost-effective option in the long-term. It also has the advantage of ensuring that tutors and

other part-time staff have personal experiences of the advantages and limitations of this

approach. However, NAMCOL needs to devise ways of providing incentives so that more

part-time staff take up the opportunities available. One way of doing this is for the College

to make an arrangement with an accredited HE institution for its tutors to register for an

existing course in ODL methods leading to a recognised qualification. NAMCOL could pay

fees on behalf of its part-time staff, then recoup these by docking payments over the course

of several years. Alternatively, the College could provide an incentive for those who

successfully complete an accredited course by paying them a one-off bonus or a higher

hourly rate.

Shorten the Turn-Around Time for Marking Assignments

Both learners and tutors consulted during the course of this study complained about how

long it takes for written assignments to be marked and returned. The learners felt that this

diminished the impact of any feedback they received and served to undermine their

53

motivation. Tutors, on the other hand, complained that they were not given sufficient time

to mark assignments, so that learners can benefit from their comments before they write

their examinations. As pointed out in paragraph 2.7.1, apart from putting pressure on

markers this also puts undue pressure on the learners. The suggested solution to this

problem was to spread the assignments out more evenly over the academic year. The

procedures that HoCs follow to moderate assignment marking also need to be revisited so

that the turn-around time can be reduced from the current average of more than 30 days to

no more than two weeks without compromising quality.

4.2.2 Improving Outputs/Outcomes for Learners

In several of the interviews, focus groups and workshops, those consulted identified the

issue of improving examination results as the biggest challenge for NAMCOL. This goal is

regarded as crucially important because the symbols learners achieve determine whether or

not they can proceed to senior secondary school or higher education. In general, academic

success is associated with obtaining a place at UNAM or the Polytechnic of Namibia. Given

the limited number of students who can be accommodated at these two institutions,

competition for places is stiff. Every year thousands of applicants who meet the minimum

requirements for entry are turned away by these institutions. Thus, many stakeholders

believe that NAMCOL needs to do more to give its learners an advantage when competing

for places in HE institutions. Rightly or wrongly, the success of the College is judged

according to how many of its learners go on to higher education. At the same time, the

limited places available at UNAM and the Polytechnic of Namibia points at the potential

that exists for NAMCOL to expand the range of post-secondary courses it offers.

Many of the proposals for improving the delivery of services at tutorial centres should also

have an impact on the outcomes for learners. However, there were four additional

suggestions under this heading:

Motivating Learners

In one of the focus group sessions, tutors identified a problem with a lack of commitment

among learners. At least some of them do not attend tutorials regularly, do not submit

assignments on time or do not demonstrate any academic commitment in the work they do

submit. Because of this, tutors can become demoralised and their commitment to working

with NAMCOL learners can be undermined. Clearly, learners who have not had much

success in the traditional education system need to regain confidence in their ability to

achieve their academic goals with the College. Motivational talks provided to participants

on the PETE programme have proved very popular, and there is scope for extending these

to all SEP learners. However, it is not easy to restore learners’ belief in themselves without a

high degree of support on a regular basis.

Although the self-instructional materials for SEP subjects contain numerous self-assessment

quizzes and other activities to encourage interaction with the content, many learners do not

54

use these to challenge themselves and simply look up the answers at the back of the book.

Those studying at JSC level are required to submit three written assignments for each

subject throughout the year, but the turn-around time for these undermines their impact as

tools for providing feedback or increasing motivation. One suggestion for encouraging

learners to take their studies more seriously is for tutors to assign homework or short

activities at regular intervals, perhaps once a week. If tutors are expected to correct this

homework, this would demand a considerable amount of additional working time. In order

to save costs, learners can be asked to exchange papers and mark each other’s work as the

tutor explains the answers during the tutorial session following the submission deadline.

Fostering Greater Discipline

It also requires a high degree of self-discipline to successfully complete a course of study

through ODL methods. There is a widespread belief that NAMCOL’s SEP learners lack the

required self-discipline and that they are too young to develop it. The solution proposed for

this problem is to make NAMCOL more like a conventional school, thus providing external

sources of authority to enforce discipline as a substitute for the learners’ own internal

qualities and motivations. In more than one interview and focus group session, respondents

went to the extent of suggesting that NAMCOL should build its own classrooms and

boarding facilities for learners, in addition to appointing permanent staff. Although it

would not be feasible for the College to secure separate physical facilities in all of the

locations where it currently operates, it would be possible for NAMCOL to change

procedures at its existing centres so that they operate more along the lines of conventional

schools.

Such a regime would involve making attendance compulsory for all contact students

between certain fixed hours, four or five days per week. HoCs would take attendance at the

start of the ‘NAMCOL school day’ and discipline any learners who are late, absent or leave

early. When not in class, learners could be required to work on their self-instructional

materials in supervised study halls, to view audio-visual resources (where available) or to

work with a peer-facilitated study group. Although some potential SEP learners may be

excluded because of the attendance requirement, the number will probably be no greater

than at present. Those who cannot attend on a daily basis can register as non-contact

learners.

Currently, the College does not have a standard code of conduct for SEP learners, nor have

disciplinary procedures been spelt out in detail. Some sort of consultation process would be

required to draft these documents, before they can be recommended to the Board of

Governors for formal adoption in terms of Section 10(c) of the NAMCOL Act. Both full-time

and part-time staff would need to be trained in how the procedures will operate, and a

system for monitoring their implementation will need to be put in place.

55

However, while this system might prove popular with parents and some learners, it is not

open learning. If this suggestion were to be adopted, it would be another step along the

road of changing NAMCOL into an institution that simply parallels conventional schools.

This would be contrary to the provisions of the NAMCOL Act, which envisages the College

as complementing the existing structures for formal education and offering an alternative to

them. Having established NAMCOL for this express purpose, there would be little point in

turning it into just another secondary school, albeit with nation-wide coverage.

Increase Involvement by Learners’ Parents and Families

Support from parents or other family members was also recognised as an important way of

boosting learners’ confidence and developing their self-discipline. Although NAMCOL

attempts to encourage involvement by parents or other family members in activities at its

tutorial centres, attendance at these events is frequently disappointing. Nevertheless, some

stakeholders felt that more needs to be done in this regard, though no concrete suggestions

were made.

Prevent Absentees from Sitting their Exams

In many formal schools, learners are not allowed to sit for their examinations if they failed to

apply themselves to their studies throughout the year. One way of encouraging learners to

apply themselves is to incorporate coursework into the final assessment for the course; this

ensures commitment by learners to engaging with their studies, attending tutorials and

investing sufficient time to the assignments. While NAMCOL must submit continuous

assessment marks for learners registered for JSC subjects, these are not required by DNEA

for NSSCO learners.

The 2005 review of the College’s roles and functions recommended that NAMCOL enter

into discussions with DNEA about a mechanism for forcing learners to attend contact

sessions.43 Formal rules would need to adopted by the NAMCOL Board to specify the

minimum number of tutorials or vacation workshop classes that NAMCOL learners would

be required to attend before being admitted to the examination. The College would then

need to issue certificates of attendance to qualifying learners before they collect their

admission documents from Examination Officers. Although none of those consulted during

the present study made reference to this, the suggestion is worth considering again.

4.2.3 Expanding the Range of Options for Further Study

Even in industrialised countries, the academic curriculum offered at senior secondary level

does not suit all learners, especially those who do not plan to pursue higher education.

Once these learners have managed to pass their exams at junior secondary level, they are

encouraged to pursue TVET courses to prepare themselves for the labour market.

Currently, however, the opportunities for doing this in Namibia are extremely limited.

43 Mmekoa and Allsop, Review of the Role and Function of the Namibian College of Open Learning, 21.

56

Many stakeholders felt that NAMCOL should improve its responsiveness to market needs

by diversifying the range of courses available to include certain TVET options as well as

additional professional programmes. Even if this does not prove feasible, it was argued that

the College should make a concerted effort to impart entrepreneurial and other skills that

learners will need for self-employment or subsistence activities in the informal sector of the

Namibian economy. A number of those consulted also suggested that ICTs should be part

of the SEP curriculum and that every learner who passes through NAMCOL should be

computer literate. Further discussion of the options for expanding the range of courses

offered can be found in the following section of this report.

Providing Guidance and Counselling for Learners

Linked to the above suggestions, stakeholders also stressed the need for providing SEP

learners with guidance and counselling services so that they get to know various career

options and opportunities that exist and the academic requirements needed in order to

pursue them. Parents pointed out that most learners do not even know what they want to

be when they finish their education, which makes it more difficult to motivate themselves to

study hard. In a country with an unemployment rate of over 50%, it can be very frustrating

for learners to see their counterparts who completed school roaming the streets day in and

day out with no jobs to go to. Such a situation undermines their belief in the links between

education, employment and a better life for themselves. They develop a negative attitude

towards schooling and may not apply themselves fully to their academic work. For this

reason, it is important that any course of study they pursue will give them a reasonable

chance of finding employment.

Currently the only guidance provided to NAMCOL learners tends to take place at the time

they enrol for the SEP. Although the College could train its Enrolment Officers to provide

career guidance and academic counselling during the course of enrolling learners, this may

not be very effective. Because this is a very busy period, Enrolment Officers rarely have

time to discuss the options available to learners in a non-directive way. For this reason,

alternative ways need to be found to help learners make informed decisions about the

options they wish to pursue. Taster workshops and online resources are used in other

countries for this purpose, and NAMCOL may wish to adopt these or other methods as

optional activities for potential learners. This type of career guidance and academic

counselling will assume greater importance when NAMCOL expands its range of courses

and is in a position to offer potential learners a wider variety of options for furthering their

education.

57

5. Future Roles for NAMCOL One of the main objectives of this study was to provide guidance for NAMCOL’s

Management Team and Board of Governors on the possible roles and functions that the

College might adopt in the future. As part of the consultation process, stakeholders were

asked to identify gaps and outstanding needs that are not being met in the present education

system and to suggest new course/programme options that NAMCOL could offer. This

section summarises all of the ideas raised.

5.1 Retain and Improve NAMCOL’s Core Business – SEP

Despite the recommendation contained in the 2005 World Bank report that NAMCOL

should abandon its role as a provider of secondary education for out-of-school youths, this

was not shared by stakeholders. A majority of those consulted during the course of this

study felt that NAMCOL should continue to play a role in the provision of complementary

secondary education in the future. Nevertheless, a very small number saw the College as a

transitional institution, whose role is to act as a stop gap until the capacity of the

conventional education system has increased to accommodate all students. These

sentiments may reflect a vein of public opinion among the general population, but it is

difficult to determine whether such beliefs are widespread.

5.1.1 Projected Demand for the Secondary Education Programme

Attempts to estimate the future potential market for the SEP have been undertaken on at

least two previous occasions, incorporating factors such as: the rates of graded, ungraded

and incomplete subject entries in the examination; the rate of progression from Grade 10 to

Grade 11 in secondary schools; and actual subject enrolments with NAMCOL at different

levels.44 The results of these efforts suggest that other, as yet unidentified, variables are at

play in shaping the demand for NAMCOL’s SEP, including:

Demographic Factors

At the time of writing, Namibia was just beginning to collect raw data for Census 2011, but

the preliminary results will only become available in 18 – 24 months. The most recent

empirical data on the size of different age cohorts comes from the 2006 Namibia Inter-censal

Demographic Survey (NIDS), though the report does not provide a year-by-year breakdown

of population by age. While the fertility rate declined between 2001 and 2006, the

population of Namibia is still growing at roughly 2% per annum as more young people

reach child-bearing age.45 In 2006, a quarter of the population was between 5 and 10 years of

age;46 this means that, by the year 2017, roughly 480,000 young people between the ages of

44 Du Vivier, Ed, Market Options for NAMCOL; Du Vivier, Ed, Financing NAMCOL into the Future: A study of the

College’s efficiency, cost-effectiveness, fee structure and funding formula. 45 National Planning Commission, Central Bureau of Statistics, 2006 Namibia Inter-censal Demographic Survey

(Windhoek: NPC, CBS, August 4, 2010), 6. 46Ibid., 11.

58

16 and 21 will be seeking education or employment. However, the overall size of this age

cohort increased only marginally (2.2%) over the five-year period. Once the results of the

2011 Census become available, more accurate projections of the demand for secondary

education will be possible.

Value of Secondary Qualifications

Investment in education has traditionally been justified on the basis of both private and

public (or social) returns. The direct monetary benefits for individuals are the most

comprehensively studied and best understood. Typically, the annual salaries and lifetime

earnings of individual workers increase for every level of education that they complete.

However, the relationship between earnings and educational attainment is not

straightforward, since relatively scarce qualifications tend to attract a premium in the labour

market. The demand for particular educational qualifications and specialised skills varies

from place to place and can also change over time.

During the early years of the new millennium, for example, the median wage for Namibians

who completed junior secondary education was not significantly different from the earnings

of workers with primary education only. However, the median wage for those with a NSSC

(or equivalent) qualification was more than double the amount received by workers who

completed junior secondary only; there was a comparable jump in the wages of those who

completed three or more years of higher education.47 The 2003/04 Namibian Household

Income and Expenditure Survey found that 35.5% of households headed by a person with

primary education only could be classified as poor. By contrast, families where the head of

household had completed secondary education were only one third as likely to be living in

poverty, while only 0.4% of households headed by a person with a tertiary qualification fell

into this category

Unfortunately, there is little or no data available to enable conclusions to be drawn about the

current situation in Namibia. Nevertheless, there is a tendency for the economic value of

particular qualifications to decline as they become more common in the labour market. For

example, in the decade after Independence in Namibia, those with a Standard 10 or IGCSE

certificate had little problem finding a job in the formal sector of the economy. However,

twenty years later, significant numbers of young people with senior secondary certificates

and higher qualifications are now experiencing long-term unemployment. Where an NSSC

(or equivalent qualification) used to be the minimum requirement for entry to certain posts,

employers can now choose from among applicants with tertiary-level certificates, diplomas

and even degrees. The same phenomenon is also being experienced in high-income

countries. In societies where a majority of young people take part in higher education,

differences between the wages of individuals with secondary and tertiary education are not

47 Tekaligne Godana and Keichi Ogawa, The Cost and Financing of Education, Unpublished consultancy report,

Human Capital and Knowledge Development for Economic Growth (in Namibia) study (World Bank, 2003), 167–168.

59

so pronounced,48 whereas those with post-graduate qualifications usually command higher

salaries.

In the current economic climate, it is difficult to predict the impact of this ‘qualifications

inflation’ phenomenon on future enrolments in NAMCOL’s SEP. Since the JSC holds little

value in terms of securing employment, the majority of Grade 10 completers who cannot

obtain a place in a conventional school are likely to pursue a senior secondary qualification

with the College as a stepping stone towards higher education. At least some out-of-school

youth who have no success in finding work will return to education with NAMCOL because

it is a better option than sitting idle. And some are likely to abandon hope that education

will lead to success and be tempted to adopt alternative lifestyles funded by the informal

economy or, perhaps, criminal activities. Nevertheless, it is difficult to predict the

proportion of young people who will turn their backs on mainstream social norms and

values. In general, high rates of unemployment are associated with increased demand for

places on educational courses in countries at all stages of development.

Expansion of Secondary Schools

Perhaps the most important factor contributing to the growth in learner numbers registered

for NAMCOL’s SEP has been the lack of capacity in the conventional education system.

Between 1997 and 2010, schools could accommodate only about 38% of young people

seeking places in Grade 11, though this percentage has increased in the last two or three

years because of the accelerated building programme for senior secondary schools.49 As part

of the first five-year plan for the Education and Training Sector Improvement Programme

(ETSIP), the Government aimed to increase the number of places in senior secondary schools

by an average of two thousand per year.50 The Ministry managed to exceed this target by

expanding enrolments in Grades 11 and 12 from just under 28,500 in 2005 to just over 41,000

in the year 2010.

Nevertheless, on average almost half (49.7%) of learners preparing for the NSSCO/IGCSE

(Grade 12) examinations since 2002 have done so with NAMCOL. Despite the increased

number of Grade 11 and Grade 12 places in conventional classrooms that have become

available over the last five years, enrolments at this level with NAMCOL have grown by an

average of 1,400 per annum (an annual growth rate of 0.9%) during the same period. Thus,

it appears that any increases in the capacity of the formal education system to accommodate

learners at senior secondary level have been offset by continued growth in demand for

places.

48 Martin O‟Donoghue, Economic Dimensions of Education (Dublin, Ireland: Gill & Macmillan, 1971), 61–71. 49See Table E.3 in Appendix E of this report. 50 GRN, Education and Training Sector Improvement Programme (ETSIP). Planning for a Learning Nation –

Programme Document: Phase I (2006-2011). Windhoek: GRN, September 2006, paragraph 44, page 24.

60

In spite of these expansion plans, major constraints are still experienced in terms of meeting

the demand for education in the country. For instance, although the MoE planned to build

1,000 new classrooms per year for Grades 1-12, only 130-140 classrooms per year have been

constructed over the past few years because of funding limitations. There is also a need to

upgrade temporary structures that are still common in some rural areas. Although the

supply of qualified teaching staff has improved significantly over the years, finding the

additional funds to employ them remains a major constraint to the establishment of new

schools. Thus, while plans are in place to expand the conventional education system, it is

very unlikely that all learners, including those who need to repeat grades, will be

accommodated in formal schools for the foreseeable future.

Ministerial Policies

As noted above, the Ministry of Education had a long-standing policy that did not allow

Grade 10 and Grade 12 failures to be re-admitted to schools except in exceptional

circumstances. However, in 2008 the Minister directed that every effort be made to

accommodate JSC failures in conventional Grade 10 classrooms. As indicated in Table 4.1,

the vast majority of those registered with NAMCOL at this level were re-sit candidates prior

to this change in Ministerial policy, although only about 70% of re-sit subject enrolments

with the College came from school-based learners who failed one or more subjects in the

previous year. If all learners from conventional schools who fail a subject in the JSC

examination are re-admitted in the formal education system, then NAMCOL can expect to

see enrolments at this level drop by a corresponding percentage.

However, this has not been the case. Although the number of JSC learners with NAMCOL

has declined at an average rate of 7% per annum since the new policy was introduced in

2008, the decrease in enrolments has not been as dramatic as expected. The most likely

reason for this is that many of those who choose to study with NAMCOL at this level have

not actually failed any of their subjects. Instead they seek to re-sit the examination the

following year in the hope of upgrading their marks/symbols and qualifying for re-entry to

Grade 11 in a conventional school. Nevertheless, it is likely that the demand for JSC level

courses with NAMCOL will continue to decline unless new markets can be found for them

(see Section 5.3 below).

Another factor that has the potential to affect SEP enrolments is the ministerial policy on

overage learners. In terms of various directives, young people who struggle to achieve

minimum standards are allowed to repeat the year only once in each phase of the formal

education system, i.e . junior primary, senior primary and junior secondary. Thus, by the

time learners are enrolled for Grade 10, they should not be older than 19 years. However,

this policy does not appear to be widely observed; the MoE’s Education Statistics report for

2010 indicates that there were 18,445 overage learners in junior secondary schools, while a

61

further 1,566 overage learners were sitting in Grade 11 and Grade 12 classrooms.51 More

rigorous enforcement of existing directives would force overage learners out of schools, and

it is likely that many of them would register for NAMCOL’s SEP.

5.1.2 Closer Integration of the SEP with Conventional Schools

Open Schooling programmes can be classified in terms of three broad categories:52

Complementary – This approach ensures that what is offered by the open school follows

exactly the same curricula and is assessed in exactly the same way as in conventional

schools. The only difference between the two systems is that greater use is made of self-

instructional materials or alternative technologies when delivering the open schooling

programme.

Alternative – In places where the curricula used in schools is primarily oriented towards

further studies at tertiary level, open schools can provide for the needs of children and

adults who seek a programme that focuses on work-related content and skills that are

immediately applicable in the real world. Alternative open schooling programmes typically

make use of new curricula and competency-based assessment methods, as well as different

modes of delivery.

Integrative – Instead of operating on the fringes of the conventional education system, open

schooling programmes can be interwoven with existing provision. In this way, an open

school can extend the reach of traditional education, while acting as a catalyst for innovation

and improving quality. Whether or not those studying in conventional schools can avail of

open schooling opportunities is largely dependent upon government policies at national,

provincial or local level.53 However, if governments and local providers can be persuaded to

integrate open schooling programmes with their conventional classroom offerings, there is

tremendous potential for synergies.

As the case of the Vancouver Learning Network has shown,54 such an integrative model of

open schooling can:

provide students with greater choice, by enabling them to study subjects which

cannot be offered in every school because of limited numbers or the lack of qualified

teachers;

51 Ministry of Education, EMIS [Education Management Information System], Education Statistics, 2010, Table 25. 52 John S. Daniel, Mega-Schools, Technology and Teachers: Achieving Education for All, Open & Flexible Learning

Series (New York, NY, USA: Routledge, Taylor & Francis Group, 2010), 69–74. 53 Ed Du Vivier and Justin Ellis, “Formulating policies to enable the development of open schooling,” in Open

Schooling in the 21st Century, Perspectives on Distance Education (Vancouver, BC, Canada: Commonwealth of Learning,

2009), 32. 54 Cindy Gauthier, “Case Study: Vancouver Learning Network (Secondary), Vancouver, Canada,” in Open Schooling in

the 21st Century, Perspectives on Distance Learning (Vancouver, BC, Canada: Commonwealth of Learning, 2009), 173-189.

62

resolve timetabling conflicts;

compensate for inadequate teaching or for the prolonged absence of a teacher as a

result of illness or other causes;

improve the quality of learning resources available to all students;

motivate teachers to make more effective use of available multi-media resources and

e-learning technologies.

Although NAMCOL’s SEP was formerly referred to as the Alternative Secondary Education

Programme, it clearly falls within the complementary category as defined by Daniel. The

fact that learners registered for the SEP follow exactly the same curriculum and take exactly

the same examinations as students in conventional schools has been critically important in

facilitating articulation between the two systems and in fostering public acceptance of

qualifications obtained by NAMCOL learners.55

The possibility of greater integration between NAMCOL’s SEP and the formal education

system in Namibia was raised in discussions with several stakeholders during the course of

this study. Apparently, the Ministry of Education does not have a formal, written policy

that prohibits school-based learners from taking some of their subjects through NAMCOL,

and there are indications that this is currently being done in isolated cases. Nevertheless,

there appears to be strong institutional resistance to this proposal at all levels in the formal

system, and this would need to be overcome before greater integration can become a reality.

If the same young person is allowed to cross-register as a full-time learner at a particular

school while also being enrolled as a part-time learner with NAMCOL, the MoE may well

raise questions about the duplication of subsidies to two institutions. However, since the

funding formula for the College’s SEP is based upon a subsidy for each subject enrolment,

this may not be a problem. In view of the potential benefits of enhanced integration, the

College should take the initiative by seeking talks with MoE Management on this issue.

5.1.3 Expand the PETE Programme

The 2005 World Bank report identified the poor output of the secondary education system as

a major constraint to any attempts to expand access to tertiary-level studies in Namibia.56

The authors recommended expansion of pre-entry and bridging courses to top up the

knowledge and skills of Grade 12 completers and to prepare them for the demands of higher

education. In response to this recommendation, the ETSIP Secretariat advertised for

expressions of interest from educational providers to offer a Pre-Entry to Tertiary Education

55 Chuma Mayumbelo et al., “Articulation of the Namibian College of Open Learning (Namcol) and the Formal

Education System in Namibia” (presented at the Bennale on Education in Africa, Maputo, MOZAMBIQUE: Association for

the Development of Education in Africa, 2008),

http://www.adeanet.org/Biennale%202008/Documentation/Papers%20for%20presentation/05.%20Session%205/Parallel%20

session%205B/Final%20PDF%20documents/Session%205B%20Doc%203%20Namibia%20ENG.pdf. 56 Marope, Namibia Human Capital and Knowledge Development for Economic Growth with Equity, 64, para. 5.35.

63

Programme with effect from 2008. NAMCOL won the tender to provide the PETE for up to

100 students per year over a two-year period. Since the beginning of 2011, no further

funding has been available through ETSIP, but NAMCOL has continued to offer the PETE.

At the 2011 National Conference on Education, providers of higher education again raised

the problem of poor performance among Grade 12 completers, arguing that they still lack

the analytical, numerical and IT skills to pursue further studies at tertiary level. Although

there was some debate about the continued need for an additional year of secondary

education to bridge the gap between the NSSC and first-year studies at UNAM and PoN, the

majority of those in the HE break-away group felt that the bridging year should be retained.

It is unclear, though, whether funding will again be made available through ETSIP or the

MoE to subsidise future iterations of the PETE Programme.

Given that this Programme aims to help participants to access higher education, the

outcomes to date have been mixed. In 2009, just over half (52%) of PETE learners achieved

higher marks (a C symbol or above) in the NSSCO examinations for all four subjects, while

only 96 out of 200 of them gained admission to an institution of higher learning. Although

PETE learners tend to receive good marks in most of their subjects, many still do not reach

the required standard in English and this has an impact on their overall performance.

Nevertheless, PETE appears to have a very positive impact on the individual learners who

take part, as discussed in Section 3.1 of this report. For this reason, NAMCOL Management

has included targets for expanding the PETE Programme with two new areas of

specialisation (commercial and social sciences) in its five-year Business Plan submitted to the

State-Owned Enterprises Governance Council.

Notwithstanding these benefits for participants, PETE is clearly an elite programme that

would be difficult to replicate widely without external assistance, at least in its current form.

Although it proved impossible to calculate the actual unit costs of this programme, they are

likely to be considerable, though lower than those incurred for comparable bridging year

courses at TUCSIN and the University of Namibia. However, without a dramatic increase in

the number of HE places available for Namibian students, access to this level of education

will not be expanded, and those who successfully complete the PETE Programme may not

be able to further their studies.

Given the ever-growing competition for a limited number of places in HE institutions,

demand for the PETE Programme is likely to increase in the short-term, and there may be a

market for this product if it is offered on a full cost-recovery basis. At least some Namibian

parents will be able to afford this type of education for their children, if they are convinced

that it will give them a significant competitive advantage. Extending scholarships to

applicants with limited means would go some way towards ensuring social equity, while

offering such a prestigious programme is likely to have a positive impact on NAMCOL’s

64

public image. For all these reasons, it is recommended that every effort be made to retain

the PETE Programme, perhaps in a modified form, if external funding is not reinstated.

5.1.4 Develop NSSC Higher level Subjects

NAMCOL’s Business Plan includes proposals to extend the SEP by developing materials for

NSSC subjects at the ‘H’ or higher level, though this was not discussed in detail with

stakeholders during the course of this study. A number of higher education providers have

indicated that the Ordinary level syllabus for certain subjects, particularly Mathematics, is

not adequate to prepare learners for further studies in specialised fields such as Science and

Engineering. Currently, UNAM, PoN and other HE institutions provide their own first-

year foundation courses for these subjects, but it would be considerably less costly for

NAMCOL to offer this service prior to admission. In addition, NSSC Higher level subjects

are available at only a limited number of schools in Namibia, so making this option available

through ODL methods would enable bright students from all parts of the country to pursue

specialised studies.

Proposals have been made for restructuring the different phases of the formal education

system in Namibia and for a major reform of the national curriculum, with the changeover

process scheduled to begin in 2014. It is proposed that the NSSC Ordinary level become the

new terminal examination for those who opt to leave school after Grade 11, while those who

continue in Grade 12 would take a smaller number of NSSC Higher level subjects. The only

compulsory subject for Grade 12 learners would be NSSCH English Language, while they

would be expected to take four other promotional subjects at this level. The intention is to

facilitate the movement of Grade 12 graduates into higher education institutions within

Namibia and abroad. The restructuring and reform process will necessitate changes in

NAMCOL’s SEP.

At present, however, relatively few learners enter for the NSSCH examination, though this

may simply be a reflection of the limited access to courses at this level. Compared to over

106,000 subject entries at NSSCO level in 2010, there were only 13,414 at higher level. Of the

subjects available, only nine were attempted by 500 candidates or more, including Biology,

Business Studies, English L2, Geography, Mathematics, Physical Science and a number of

indigenous languages. Students who opt for the more challenging syllabus also tend to do

better in the exams, with fewer than 5% on average receiving ungraded or incomplete

marks. Thus, the total potential market for NSSC Higher level studies appears to be quite

limited at present (however, see the suggestions in Section 5.2.2 below).

Currently, teachers with a Basic Education Teacher’s Diploma (BETD) are qualified to work

with learners up to Grade 10. One of the shortcomings of the BETD programme was that it

included only limited inputs in academic subjects, so teachers will need to top up their

subject knowledge in order to cope with the teaching higher level subjects under the

65

reformed curriculum. One stakeholder suggested that NAMCOL could facilitate this

upgrading process offering NSSCH courses in different subjects through ODL methods for

serving teachers. However, given the complexities of the proposed curriculum reforms and

their potential impact on demand for courses at this level, it is not possible to make

recommendations at this stage.

5.1.5 Preparation for Examinations

Given the importance of achieving good marks in school-leaving examinations and the

anxiety experienced by learners and their parents around this, even those on limited

incomes will find money to spend on additional tuition. There are a couple of ways in

which NAMCOL could capitalise on the potential market demand for assistance in this field.

Extend Examination Preparation Workshops to Learners in Schools

Currently, NAMCOL organises workshops twice a year during school vacations for non-

contact learners registered for the SEP. Typically, the second of these focuses on preparing

for the JSC and NSSCO examinations, which take place a few months later. The College

could easily develop the market for this service by opening up these workshops to students

from conventional schools on a fee-paying basis for those who can afford it. The

programme for these workshops may need to be revised to kick off with a mock

examination to diagnose where further study is required, one-to-one consultations with

students to draw up individual study plans, followed by several days of intensive remedial

instruction and coaching on examination techniques. Copies of NAMCOL’s existing

examination preparation booklets can be distributed to all students to assist them in the

weeks following the workshops.

Although it is difficult to assess the potential demand for such workshops, it would be

relatively easy for the College to test the market at a few selected centres without much risk.

Apparently NAMCOL attempted this in 2010 with disappointing results, because of

competition from conventional secondary schools. Further market research is desirable to

identify ways in which NAMCOL could address learner needs and increase its share of this

market.

e-Learning Materials for After School Study and Examination Preparation

In many other countries, commercial entities have developed both paper and e-learning

materials that target a potentially lucrative market for afte- school study and examination

preparation. Sales of NAMCOL’s own examination preparation booklets are an indicator of

the high demand for such products in Namibia.

One suggestion for further exploiting this market is to convert the existing materials for e-

learning. Typically, such resources involve a bank or database of questions modelled on

past examination papers. Users respond by selecting an answer from a list of multiple

choices, followed by immediate and automatic feedback provided by the computer

66

program. Although such exercises tend to test lower level recall skills, they enable users to

develop their memory power, practice examination techniques, build up their speed at

answering questions and overcome their fear of examinations. At least one IT company in

Namibia has already begun to develop and market e-learning resources for this purpose.

It would be relatively easy, though time-consuming and therefore costly, to convert

NAMCOL’s existing examination preparation booklets into automated quizzes using open

source e-learning programs (such as Hot Potatoes or Moodle) or proprietary software. A set

of interactive resources for each subject can then be uploaded to a USB memory stick or

downloaded from a website for a fee. Once the materials have been developed, the costs of

reproduction and distribution would be relatively low. Providing these resources to all

learners registered for the College’s SEP (in addition to the materials and other services they

receive) would be a cost-effective way of adding value and increasing the prestige of

NAMCOL courses.

5.2 Expand upwards into Higher Education

Many of those who took part in the consultation process supported the suggestion that

NAMCOL expand its involvement in the HE sub-sector, though a number felt that quality

issues with the SEP need to be addressed first before venturing further into the provision of

education at a higher level. Although Section 4(a)(iii) of the NAMCOL Act includes a

mandate of ‚providing opportunities for adults and out-of-school youths to upgrade their

professional and vocational skills‛, the College’s future involvement in the higher education

sub-sector is uncertain.

In the absence of an approved policy and clear guidelines for the future development of

ODL in Namibia, NAMCOL’s Board and Management may feel constrained from expanding

in this direction. There may also be a legal impediment to any plans by NAMCOL to offer

such programmes. At present, there is no specific provision in the NAMCOL Act for the

College to make its own academic awards above certificate level (NQF Level 5) (see Section

2.2 of this report). Nevertheless, since the National Qualifications Authority has certified

NAMCOL as an approved education and training provider, as well as evaluating the

College’s existing Professional Programmes, the certificates and diplomas awarded to

successful candidates are fully accredited.

Nevertheless, there is some ambiguity in the law with respect to the awarding of post-

secondary qualifications in academic disciplines. In terms of Section 41 of the Higher

Education Act [No. 26 of 2003], it is a criminal offence for an institution to offer HE courses

or confer degrees, diplomas or certificates if it is not registered with the National Council for

Higher Education. However, Section 20(4) of the Act specifically excludes programmes of

open learning offered by NAMCOL from the definition of higher education. Thus, it would

be prudent for NAMCOL to clarify the legal situation before expanding into this sub-sector.

67

The researchers understand that consultations are set to take place on possible amendments

to the Higher Education Act, and it may be possible for NAMCOL to influence the outcome

of these discussions to its advantage.

5.2.1 Diploma & Degree Options for PP Completers

Many of the learners who successfully complete one of the College’s Professional

Programmes seek to further their education by studying at higher levels. In the past,

NAMCOL entered into a partnership with the UNISA ABET Institute to offer the Higher

Diploma in Adult Basic Education and Training for Namibian graduates of the Certificate in

Education for Development programme, though this arrangement was discontinued at the

end of the 2006 academic year. At that stage, UNAM began to offer higher level

qualifications in Adult Education, and it was expected that CED completers could be

accommodated there. Unfortunately, attempts to ensure articulation between the two

qualifications have apparently stalled, and graduates of NAMCOL’s CED course are not

exempted from first-year study requirements for the University’s own course. Because of

continuing demand for follow-on options from CED completers, the College has developed

its own Diploma in Education for Development qualification. As noted in Section 3.3, a

similar problem has been encountered with graduates of NAMCOL’s CLGS course.

The natural starting point for any move to expand NAMCOL’s involvement in the HE sub-

sector would be to offer diploma level courses for learners who successfully complete the

existing certificate programmes. Although these might be viewed as duplicating courses

available at UNAM or PoN through ODL methods, the record of collaboration to date has

not been promising and it is former NAMCOL students who have suffered. Ultimately,

there may be sufficient demand to justify extending these programmes up to ordinary

bachelor (NQF Level 7) and honours bachelor degree (NQF Level 8) levels, pending

clarification of the legality of the College’s involvement in higher education.

5.2.2 New Programmes at Certificate, Diploma & Degree Levels

Although concern has been expressed about overlap and duplication in the course offerings

of publicly-funded higher education institutions, there appears to be a considerable demand

for additional opportunities at this level in Namibia. The 2005 World Bank report concluded

that:

The education and training system fails to meet labour market skills requirements. A key

cause of skills deficits is the narrow pipeline of good-quality senior secondary school

graduates, especially those with good grades in English, mathematics, science, and ICTs.

The low quality and quantity of the secondary school throughput limits the potential of

post-secondary education and training institutions to respond to current labour market

needs, and to supply the high-level skills required in key growth sectors.57

57 Marope, Namibia Human Capital and Knowledge Development for Economic Growth with Equity.

68

Although Marope and her colleagues attributed the scarcity of skilled workers primarily to

shortcomings of the secondary education system, it appears as if there is no longer sufficient

capacity within Namibia’s publicly-funded HE institutions to meet market demand even if

the number and quality of secondary school graduates were improved, as they should be. In

an interview with representatives of the National Council for Higher Education, it emerged

that roughly 15,000 qualified applicants cannot be accommodated by UNAM every year. In

2011, the Polytechnic of Namibia turned away over 8,000 qualified applicants.58 This

evidence suggests a severe shortage in the supply of HE learning opportunities.

On the demand side, there also appears to be a shortage of graduates in a number of

academic disciplines. A recent survey commissioned by the Namibian Employers’

Federation (NEF) found that 96% of HR practitioners in the nation’s major employers

believe that there is a ‘severe’ or ‘very severe’ shortage of skilled workers. Seven out of ten

respondents indicated that they were currently unable to fill critical vacancies for specialised

positions in their own organisations or companies.59

Although the National Planning Commission is reportedly engaged in an exercise to map

skills shortages in particular sectors of the economy, the Saide researchers were unable to

gather any details about this during the time available. Nevertheless, published sources

give some indications of the types of training that are required. An earlier report on the

supply and demand for specialist skills in the Namibian economy indicated that there will

be a deficit of 1,450 engineers and 2,340 financial practitioners by 2012.60 The Vision 203061

document and the annexes to the NEF survey62 include suggestions for further skills

development programmes in the following professional disciplines:

Financial, Real Estate and Business,

Natural Sciences,

Social Sciences,

Agriculture,

Nursing,

Logistics, Transport and Supply Chain Management,

Human Resources Practitioners (including the training of trainers for industry),

Accountancy,

Architecture,

58 Corneels Jafta, “Access, Affordability and Equity Constraints in Higher Education” (Conference Presentation

presented at the National Conference on Education, Windhoek, NAMIBIA, May 29, 2011), Slide 4. 59 Frederico Links, Namibia’s Skills Deficits: Cross-sectoral perceptions and experiences, Consultancy (Windhoek,

NAMIBIA: Namibian Employers‟ Federation, in collaboration with the Ministry of Labour and Social Welfare, NUNW and

TUCNA, November 2010), 2. 60 National Planning Commission, Technical Assistance to the National Planning Commission (Namibia) for the

Updating of the Human Resources Demand and Supply Model (Windhoek, NAMIBIA: NPC and European Union, 2006). 61 Office of the President, Namibian Vision 2030: Policy Framework for Long-Term National Development, 64. 62 Links, Namibia’s Skills Deficits: Cross-sectoral perceptions and experiences, 14–21.

69

Management (for both commercial and public-sector bodies).

Before NAMCOL can make a decision on any new higher education courses, a detailed

report should be prepared, including: an assessment of the potential market, a review of

possible arrangements for curriculum and materials development, consideration of a variety

of delivery methods and cost estimates for different options.

As discussed above, the potential demand for NSSC Higher level subjects among senior

secondary students may not be high enough to justify proceeding with the development of

ODL courses at present. However, modular courses at this level might be repackaged to

create programmes leading to a higher level award, as the Caribbean Examinations Council

has done for its Associate Degree Programme. It may be possible for NAMCOL to adopt a

similar strategy to devise a range of new NQF Level 5 and 6 award programmes based on a

series of new modular courses that can also be used by learners enrolled for the College’s

PETE and SEP.

The Caribbean Examinations Council

The Caribbean Examinations Council (CXC) was established in 1972 as the regional body

with responsibility for administering a common school-level examination system in nineteen

countries and territories. The CXC has devised curricula and examination syllabuses for

both vocational and academic subjects at various different levels. Because of limited

demand for the Caribbean Advanced Proficiency Examination (CAPE, equivalent to British

A-Levels or NSSCH), CXC developed an Associate Degree Programme (equivalent to an

NQF Level 6 qualification) for students who cannot gain access to conventional universities

or other HE institutions. In order to qualify for the award, students must successfully

complete seven modular courses at CAPE level in a coherent field of study, including:

Business Studies, Computer Science, Technical Studies, Environmental Science, Humanities,

Mathematics, Modern Languages, Natural Sciences and Humanities.

(For further information, see: http://www.cxc.org/examinations/exams/associate-degrees-

2005)

5.2.3 Partnerships with other institutions

Because Namibia’s population is relatively small, the pool of potential students for many

specialised courses is likely to be very limited. In general, developing new self-instructional

materials from scratch for any ODL programme is unlikely to be a cost-effective option for

NAMCOL. As a rule of thumb, the expenditure required to develop a new programme

entirely in house can only be justified on economic grounds when it will be used by a

significant number of students over the life of the course. In order to expand into the higher

education market, it is not uncommon for smaller ODL institutions to form partnerships

70

with larger and better-known regional and international open universities. This appears to

be the strategy adopted by NAMCOL’s sister institution in Botswana.

Botswana College of Distance and Open Learning

The Botswana College of Distance and Open Learning was established at about the same

time as NAMCOL and soon became well-known for its school equivalency programmes at

junior and senior secondary level. In order to realize its aspiration to become the Open

University for Botswana, BOCODOL has introduced a number of higher education options

in cooperation with regional and international universities. Currently, students can register

with BOCODOL for certificate, diploma and degree programmes offered in partnership with

the Zimbabwe Open University, using self-study materials developed by the International

Colleges Group in South Africa. BOCODOL is also registered as the Botswana node for the

Pan-African e-Network Project, which offers HE awards up to post-graduate level through

an arrangement with a number of Indian universities.

With collaborative arrangements for developing and delivering an ODL course or

programme, there are a range of options for disaggregating the value chain and assigning

responsibility for the various activities to different bodies.63 NAMCOL already has some

experience of this through its past association with the UNISA ABET Institute and the

Zimbabwe Open University. In its simplest form, collaboration might involve NAMCOL

acting as the local agent for another institution (such as UNISA or the UK Open University),

providing administrative and support services such as:

Promoting courses and programmes through a publicity and information

campaign;

Assisting in the registration of students by verifying prior qualifications, collecting

and remitting fees, distributing study materials, etc.;

Facilitating the recruitment and supervision of local tutors;

Providing physical facilities for tutorials or tele-conferencing sessions;

Invigilating examinations.

It may also be possible for NAMCOL to secure the national franchise for a commercial

education provider (such as Intec College). Alternatively, NAMCOL might decide to

acquire and adapt a curriculum and/or self-instructional materials developed by another

ODL institution to form the basis for a HE programme that it will deliver, assess and

certificate on its own.

63 NOLNet, “Draft National Policy on Open and Distance Learning (ODL) in Namibia” (Namibian Open Learning

Network Trust, November 2007), 29–30; Du Vivier, Open & Distance Learning in Namibia: Options for the Future, 19–20.

71

While collaboration between education providers sounds attractive in theory, it can be

challenging to make such arrangements work in practice.64 It is rare for two or more

organisations to reach complete agreement on the best way to pursue their mutual interests,

with the result that consortia are often unstable and short-lived. Inter-institutional

cooperation can be undermined by:

differences in institutional culture,

undue emphasis on traditional autonomy and academic independence,

the ‘not-invented-here’ syndrome (where academics are highly critical of curricula

and resources they have not produced themselves),

badly conceived objectives for collaboration,

failure to identify and articulate benefits to partner institutions,

poorly drafted cooperation agreements,

incompatible organisational structures and administrative procedures,

inadequate funding,

poor interpersonal relations,

weak leadership,

lack of genuine commitment, and

absence of trust between the parties.65

Nevertheless, when these constraints have been addressed and overcome, collaborative

arrangements can prove to be an efficient and cost-effective means of delivering ODL

services that meet the needs and expectations of students.66

5.3 Expand Downwards to Link Up with Post-Literacy Programmes

In addition to young people coming up through the schools, there are numerous adults who

may wish to return to education in order to attain a JSC, NSSC or higher qualification. Of

those fifteen years of age and above who had already left school in 2006, a total of 276,221

had completed primary school but had not finished their secondary education. This

represents 48.8% of the out-of-school population, an increase of seven percentage points

since 2001.67,68 The NEF survey also noted that illiteracy and low standards of general

64 Greville Rumble and Colin Latchem, “Organisational Models for Open and Distance Learning,” in Policy for Open

and Distance Learning, edited by Hilary Perraton and Helen Lentell, vol. 4, Review of distance education and open learning

(London, UK: Routledge Falmer Press, in conjunction with the Commonwealth of Learning, 2004), 117. 65 Ibid., 129. 66 A.W. (Tony) Bates, “Technology and Lifelong Learning: Myths and realities,” in Distance Education and

Technology: Issues and practice, edited by David Murphy, Ronnie Carr, James Taylor & Wong Tat-meng (Hong Kong:

University of Hong Kong Press, 2004), 20–25. 67 National Planning Commission, Central Bureau of Statistics, 2006 Namibia Inter-censal Demographic Survey, 25. 68 A further 122,244 persons (23.3% of the out-of-school population) had yet to complete their primary education.

Should these adults wish to continue learning after completing an Adult Basic Education programme, their only option at

present is with NAMCOL. Source: Ibid., Table 5.3, page 25.

72

education act as a constraint for many employees who could benefit from further education

or training.69

In 1998, the Government’s literacy programme was extended to include an Adult Upper

Primary Education (AUPE) component in order to provide opportunities for those who

successfully complete the NLPN to continue their studies. The AUPE curriculum includes

four core and four optional subjects, which are taught through the medium of English. Each

subject consists of three modules, and learners normally take two subjects per year.

However, some NLPN ‘graduates’ find the AUPE materials too challenging and experience

difficulty in completing the modules within the prescribed period. In 2010, a total of 6,810

learners were enrolled for the AUPE provided by the Ministry’s Directorate of Adult

Education.70

Learners who pass the final examinations in all four core subjects and two of the four

optional subjects are issued with a statement of results. The AUPE examination has been

accepted by the Namibia Examination, Assessment & Certification Board, which validates

national examinations for school-based learners. Successful completion of the AUPE

programme is equivalent to Grade Seven in primary school, which is roughly equivalent to

Level 2 in the National Qualifications Framework.

5.3.1 Adult Bridging Year Programme

An AUPE certificate enables adults to pursue further studies at NAMCOL or other

institutions offering courses leading to the Junior Secondary Certificate. However, many

learners find the transition to higher level studies difficult, because the JSC materials

available from NAMCOL only cover the Grade 10 syllabus and are thus too demanding for

those who have just completed the AUPE programme. In order to top up the general

educational standards of AUPE graduates, the Directorate of Adult Education has recently

developed curriculum guidelines for an Adult Bridging Year Programme (ABYP). The

ABYP comprises eight subjects – English, Mathematics, Life Science, Physical Science,

Commerce and Social Studies – which complement those taken by learners in Grades 8 and

9 at conventional junior secondary schools.

As yet, no decisions have been taken on how the ABYP will be delivered or which bodies

will be involved in the development of instructional materials or the provision of courses to

learners. As enrolments in the NLPN have dropped in recent years, DAE has ventured into

the provision of the AUPE. It is likely that the development and delivery of the ABYP will

be seen as a natural extension of DAE’s mandate and role. Nevertheless, courses that are the

equivalent to Grades 8 and 9 in formal schools would be a useful addition to NAMCOL’s

existing suite of Grade 10 subjects. For this reason, it would be desirable for the College to

69 Links, Namibia’s Skills Deficits: Cross-sectoral perceptions and experiences, 15. 70 Ministry of Education, EMIS [Education Management Information System], Education Statistics, 2010, Table 59,

Worksheet “Data.”

73

seek a central role in the development and delivery of the ABYP in order to ensure

articulation with the SEP and to provide alternatives for learners who find NAMCOL’s

existing Grade 10 courses too demanding.

5.3.2 Foundation Qualification – NQA Level 1

The technical & vocational education and training (TVET) system in Namibia is currently

undergoing a dramatic transformation. Formerly, responsibility for this sub-sector was

assigned to a separate directorate, which formed part of the Ministry of Higher Education,

Vocational Training, Science and Technology between 1995 and 2005 and of the Ministry of

Education since then. With the coming into effect of the Vocational Education & Training

Act in 2008, many of these functions were taken over by a new parastatal body called the

Namibian Training Authority (NTA).

Attempts have been made to provide a work-oriented alternative to the NLPN by

developing standards for basic skills. To date, the NTA has devised four units in the TVET

system for what are referred to as Foundation Skills, including:

Unit 332 Apply basic numeracy skills in different contexts

Unit 333 Apply basic reading skills in English in different contexts

Unit 334 Apply basic writing skills in English in different contexts

Unit 335 Apply basic speaking and listening skills in English in different contexts

Each unit standard specifies the competencies and performance criteria that trainees must be

able to demonstrate when using these skills in a range of settings, including at home with

the family, in the community and in the workplace.

All of these units have been approved for credit at Level 1 in the National Qualifications

Framework (NQF) by the Namibia Qualifications Authority. A Canadian institution has

been contracted to develop unit standards, curriculum modules and training materials for

these and other generic Workplace Essential Skills such as Health & Safety, First Aid, and

basic HR procedures. Trainees who successfully complete these modules will be eligible for

the award of a Level 1 Foundation Certificate, which will be launched by the NTA in the

near future. In addition, units and materials have been developed at Levels 1 and 2 for

training in the specialised English communication skills required for different sectors of

industry, including: Automotive Mechanics, Bricklaying, Clothing Production, Hospitality,

Joinery & Cabinet-Making, Metal Fabrication, Office Administration, Plumbing, and Tour

Guiding.

Because the curriculum for the TVET units specifically focuses on improving employees’

communication skills and performance in different workplace settings, employers are likely

to favour these over the general education curriculum offered through the NLPN and the

AUPE. From the point of view of employees, the TVET system may prove more attractive

74

because it enables them to climb onto a ladder of awards without first having to complete

many years of academically-orientated education. The credits received for successful

completion of the reading, writing, English communication, numeracy and HIV/AIDS

awareness units can be accumulated towards the award of nationally- and internationally-

recognised qualifications.

Converting these modules into courses that can be delivered through ODL methods would

address the needs of many unskilled workers who cannot attend conventional face-to-face

classes, including those employed in the:

Hospitality industry (especially those working in remote lodges),

Road construction and maintenance,

General construction,

Local offices of Government ministries,

Private homes as cleaners, child-minders or gardeners,

Security Industry.

Although no statistics were found to enable the Saide researchers to estimate the total

potential market for an NQF Level 1 Foundation Certificate, it is likely to be substantial. For

this reason, NAMCOL should give serious consideration to expanding its provision in this

direction. Nevertheless, designing appropriate instructional methods for delivering basic

literacy and communication courses through ODL methods poses a number of challenges.

Although the College has considerable expertise in the development of self-instructional

materials in paper form, much greater emphasis will need to be placed on alternative media

to ensure that learners are not held back by any difficulty they may have in reading and

understanding materials that rely heavily on text in the English language.

5.4 Expand sideways into TVET

Technical & Vocational Education and Training represents a broad spectrum of structured

learning opportunities that is often contrasted with general or academic education. TVET

includes preparation not only for traditional trades (such as brick-laying, carpentry, welding

or auto-mechanics), but also for an increasing number of commercial occupations and

technical disciplines. In the United Kingdom, Ireland, Australia and South Africa, schools

and other institutions have expanded their course offerings into what is known as further

education (FE) in order to hold on to learners who are not inclined to pursue academic

education after the statutory school-leaving age. A typical FE college offers learners the

opportunity to obtain post-secondary qualifications in a variety of manual and non-manual

occupations, including: construction, agriculture, secretarial skills, IT, tourism & hospitality,

community & youth work, and the visual arts. In the USA, community colleges perform a

similar function by offering courses up to Associate (AA) Degree level (equivalent to NQF

75

Level 6 in the Namibian system), thus providing an alternative to academic and technical

universities.

Currently, TVET in Namibia is offered in the following forms:

Some larger companies and State-owned enterprises have in-house capacity to train

their workers;

Several private sector providers also offer training in different fields, either in-

company or at their own training facilities;

Vocational Training Centres (VTCs), which (until recently) required applicants to

have a Grade 10 certificate,

Community Skills Development Centres (COSDECs), which have more relaxed entry

requirements, and

The Polytechnic of Namibia provides a range of courses that might also be classified

as TVET, though these are typically at higher levels in the National Qualifications

Framework.

While the capital and operating budgets of the VTCs and COSDECs are drawn primarily

from public funds, the intention is to give these TVET institutions greater autonomy and

responsibility for managing their own financial affairs, based upon diversified sources of

funding. Preparations are well advanced towards the establishment of a National Training

Fund (NTF) Council, which will have responsibility for distributing monies accruing from a

national TVET levy. The NTF will be used to fund the provision of courses and programmes

either by employers themselves or by approved TVET providers.71

Although NAMCOL’s statutory objectives include the provision of opportunities for citizens

to upgrade ‚vocational skills‛, the College has yet to take decisive steps to fulfil this part of

its mandate. Many of those who took part in the consultation process supported the

suggestion that NAMCOL explore the possibility of delivering vocational training, though a

number expressed scepticism that this can be done exclusively through ODL methods.

Should the College expand into the provision of TVET, it would be well-placed to bridge the

gap that currently exists between the general (academic) education and TVET systems.

Learners enrolled with NAMCOL could progress along alternative pathways, switching

from one system to the other depending upon their changing personal and career goals over

the course of their lives.

71 Refer to Parts IV and VI of the Vocational Education and Training Act, 2008 [Act No. 1 of 2008].

76

The Open Polytechnic of New Zealand

The Open Polytechnic of New Zealand is an example of an institution that bridges the gap

between the academic and vocational education systems. Originally founded in 1946 as a

technical correspondence school, it was renamed the Technical Correspondence Institute in

1963 and began to offer training on a national basis. As part of wider educational reforms,

the institution was renamed the Open Polytechnic of New Zealand in 1990 and designated

as the specialist national provider for ODL at tertiary level. In 2009 nearly 29,000 learners

from New Zealand and forty other countries/territories were registered with OPNZ.

Seventy-eight per cent of its students are twenty-five years of age or older, and almost six

out of ten are female.

The OPNZ offers programmes leading to over a hundred different qualifications in a variety

of disciplines. Learners can enrol for modular courses at NQF Levels 1-7, though five out of

every eight students is pursuing a programme at Level 4 or lower. Arrangements can also

be made for home-schooled students and pupils in conventional schools to register for

OPNZ courses. Delivery methods include self-instructional materials (print, multimedia

and online), contact sessions for some courses, remote interaction with lecturers/tutors (by

free phone, fax or e-mail), and feedback on assignments. Registered students can also avail

themselves of support services at a network of OPNZ Learning Centres or through the

institution’s Online Campus and Library.

5.4.1 TVET Courses that might be offered by NAMCOL

In addition to the NQF Level 1 Foundation Certificate and other basic TVET qualifications

(discussed above), NAMCOL may wish to consider offering other courses in specialised

fields. The annexes to the NEF Survey72 suggest several sectors of the Namibian economy

were basic level skills training may be required by large numbers of workers, including:

English language communication skills for nurses and other health professionals,

Soft skills training (e.g. communication, inter-personal skills, customer service,

problem-solving) in many sectors,

Basic skills in computer literacy and business appreciation in most commercial

environments,

Sales techniques for retail workers.

The exercise to map human resource development needs, which is currently being

undertaken by the NPC, should provide more detailed information on skill deficits in

different sectors of the Namibian economy. Where the demand for higher-level technical

and vocational training is not currently being met by public- and private-sector bodies, then

72 Links, Namibia’s Skills Deficits: Cross-sectoral perceptions and experiences, 14–21.

77

opportunities for NAMCOL to expand into TVET provision should become apparent.

However, providing such training (or components of it) through ODL methods will only be

feasible if a significant number of participants can be guaranteed over the life of the course.

For this reason, the College should focus its market research on generic skills that are in

demand by companies across several sectors of the economy. Any courses intended to

address these skill deficits are likely to be at Levels 1 – 4 in the National Qualifications

Framework.

5.4.2 Arranging for practical, hands-on training sessions

A major constraint that NAMCOL will face if it plans to become involved in the provision of

TVET is arranging for practical, hands-on training sessions. Almost without exception,

TVET courses involve a component of supervised practice. Trainees need to be given

opportunities to apply their theoretical knowledge to situations that simulate the workplace

and to develop their psycho-motor skills with regular feedback on their performance. In the

construction trades and other industries, TVET is traditionally provided through an

alternance model, with periods of theoretical study (often in a conventional classroom

environment) alternating with periods of practical application under the guidance of a

qualified tradesman (often referred to as apprenticeship). While the ODL methods that

NAMCOL currently uses would be suitable for the theoretical components of many TVET

courses, the College would still need to devise ways for trainees to develop practical skills.

Collaboration with VTCs & COSDECs

Currently, Namibian VTCs operate in a manner similar to schools, with a block intake of

trainees at certain times of the year. Both the theoretical and practical components of TVET

courses are provided at the centres, and trainees attend on a full-time basis until their course

has been completed and their performance assessed. This means that workshop facilities lie

idle during those hours when trainees are receiving classroom instruction, as well as during

vacation periods. The throughput of existing VTCs could easily be increased if alternative

arrangements can be made for the theoretical components of the courses they offer.

Although the training available at COSDECs is delivered more flexibly, it is likely that more

trainees could be accommodated if the physical facilities could be used primarily for the

practical components of courses. At present, only about 3,000 trainees pass through the

publicly-funded TVET system each year, and the existing institutions are under pressure to

increase trainee numbers.

Should the NAMCOL Board decide to expand into the provision of TVET, an approach

should be made to the existing VTCs and COSDECs to negotiate a basis for collaboration in

the provision of the theoretical and practical components of courses. However, as this

would involve radical changes to the way these institutions operate, it may not be possible

to devise mutually-acceptable arrangements.

78

Development of Yetu Yama Centre

If agreement cannot be reached between NAMCOL and an existing TVET institution for the

provision of hands-on training sessions, the College should consider a proposal that was

first mooted in the late 1990s. The Yetu Yama Centre was originally designed as a training

facility for the TVET components in the pre-Independence secondary education system.

Rather than providing expensive training facilities at each school, students from around

Katutura were transported to the Centre to take part in different vocational courses as

required. When NAMCOL occupied the Centre early in 1998, the large workshops toward

the rear of the site still contained the equipment required for training in various trades,

including brick-laying, carpentry and welding/metalwork, though this equipment was

subsequently redistributed to schools in the Khomas Region.

As these facilities were designed and built expressly for the purpose of providing TVET,

NAMCOL explored the possibility of providing such courses through a combination of ODL

materials for theoretical components and practical sessions for skills development, which

would be delivered on site. Since trainees would be drawn from around the country, this

proposal involved the construction of hostels to accommodate them. As no funding was

available at the time to re-equip the centre or to build new facilities, the proposal was

abandoned. Nevertheless, it would still be possible to convert parts of the Yetu Yama

Centre so that they can be used for TVET. During the interview with a representative of the

NTA, he suggested that funding may be available for such a development. A detailed

proposal and business plan would need to be prepared in order to motivate the conversion

of the Yetu Yama Centre to enable NAMCOL to offer TVET training in specific trades.

5.4.3 Acquiring ODL Materials for TVET

Apart from the NQA Level 1 Foundation Certificate (discussed above), the number of

trainees for most TVET courses are relatively small. For this reason, it is critical for

NAMCOL to exhaust all options for acquiring the rights to use existing ODL materials

before deciding to develop new materials from scratch. An approach has already been made

to the National Institute for Open Schooling in India to gain access to TVET materials they

have developed so that their suitability for a Namibian context can be assessed. Before

making a final decision on how to proceed, it would be advisable to explore the possibilities

of acquiring such materials from other providers in Southern Africa and further afield. It

may also be possible to tap into the growing body of open educational resources (OERs) for

TVET.

79

6. Transforming NAMCOL to meet the demands of 2030 Making predictions for the long-term future is a difficult task, particularly where it involves

technologies that have been evolving at a phenomenal rate. For example, in the late 1980s

mobile phones were about the size of a brick and were accessible only to the rich who could

afford the high purchase price and usage charges. At the time, few people were able to

predict the global revolution in mobile communications that has taken place since then.

Nevertheless, now is the time for NAMCOL’s Management to begin the process of forging a

consensus on the College’s future beyond the coming five-year period. It is also advisable

for NAMCOL to begin experimenting with the technologies that will change the way in

which its services are delivered. As Rumble and Latchem note:

The one certainty facing policy makers is that the environment is changing, and that this

will impact fundamentally on the structures through which distance education is

delivered.73

In order to get ahead of the competition in this rapidly-changing global environment,

NAMCOL must also change the ways in which it does business.

6.1 National Policy Vision

The starting point for this exercise is the Namibia Vision 2030 report, which inter alia aims to

develop a ‘Knowledge-Based Society’. This will require a transformation of the education

system, which will need to:

… shift its emphasis from imparting knowledge in the form of large quantities of

information to imparting learning competencies that will enable learners to cope with

and take advantage of the rapidly changing world.74

Essentially, a knowledge-based society refers to what is needed to compete and succeed in

the changing economic and political dynamics of the modern world. It refers to a society

that is well educated, and which drives economic development though innovation and

entrepreneurship. Such a society has capacity to harness the existing wealth of knowledge

and utilise it for the maximum benefit of its people. In the process, it also generates

knowledge that supports local development efforts and links the local with the global. At

the centre of this vision for social and economic development is technology, in general, and

ICTs in particular. The Namibia Vision 2030 report envisages that ICTs will be applied

throughout all sectors of the economy and society to serve development goals. In order to

prepare young people to take advantage of this new environment, IT training will be part of

the education system starting from pre-primary level.

73 Rumble and Latchem, “Organisational Models for Open and Distance Learning,” 136. 74 Office of the President, Namibian Vision 2030: Policy Framework for Long-Term National Development, 30.

80

However, there are several factors that operate as constraints to realising this vision.

Principal among these is the lack of ICT facilities in schools and other learning centres. In

2005, the Ministry of Education undertook a major planning exercise as part of the Tech/Na!

initiative, which resulted in a National Policy on ICTs in Education75 and an Implementation

Plan. Although these documents envisaged the roll out of computer facilities to all schools

with secondary grades by the end of 2009,76 actual deployment has fallen considerably short

of this target. As an indication of the rapidity with which technological and economic

changes are driving new developments, consider the standard deployment model envisaged

in the Tech/Na! Implementation Plan. Since the 1980s computer labs have been the most

common way of providing access to ICTs in schools and other educational institutions.

However, this now appears to be a transitional stage that is rapidly being displaced by 1:1

computing, where each learner has his or her own mobile device that links to all others

through a wireless network.77

A second major impediment is the lack of teachers and other educators who have been

trained in how to optimise the use of ICTs in education, and this presents an opportunity for

NAMCOL. Delegates at NEC 2011 and those consulted during the course of this study

suggested that the College offer computer training programmes to enable teachers to

integrate ICTs in their classroom practice. One option would be to combine a selection of

the many learning resources already available on the web into a series of short modules for

Namibian teachers. These could be delivered during weekends or school holidays at the

College’s CBLCs or offered in an online version via an external VLE/LMS. Another option

would be for NAMCOL to enter into a partnership with a higher education institution to

offer a post-graduate certificate- or diploma-level programme on ICTs in Education. Not

only would these programmes address the skills deficits among teachers in conventional

schools, but they would also meet the needs of NAMCOL’s full-time and part-time staff who

wish to familiarise themselves with the potential of ICTs for their work.

Thus, NAMCOL may need to develop more and more courses in technological subjects in

order to tap into a new market while, at the same time, it also imparts skills and

competencies by delivering its traditional programmes through ICTs. One of the

recommendations raised during discussion with parents in Oshana region is that all learners

should be equipped with computer literacy; this shows the extent to which even the

ordinary parent values the place of technology in the Namibian economy.

75 Ministry of Higher Education, Training and Employment Creation and Ministry of Basic Education, Sport and

Culture, ICT Integration for Equity and Excellence in Education, n.d. 76 Ministry of Education, Namibia, “Infrastructure Readiness and Platform Deployment Targets,” Institutional

promotion, Tech/Na!, 2006, http://www.tech.na/deployment_targets.htm. 77 Intel, The Positive Impact of eLearning, Industry White Paper, Intel World Ahead Program, Education (Intel

Corporation, 2009),

http://download.intel.com/pressroom/archive/reference/Positive_Benefits_of_eLearning_whitepaper.pdf.

81

6.2 Re-Imagining the Future of Education in Namibia

The debate about future roles and functions for NAMCOL suffers from a failure of

imagination among the general public. Because stakeholders have only very limited

experience of the alternatives, they cling to a vision of education that is rapidly becoming

outmoded in other parts of the world. Despite the fact that the industrialised model of

schooling has been in wide-spread use in Namibia for less than a century, for the majority of

stakeholders the ideal institution for delivering secondary education is still the traditional

school. However, they aspire to an idealised image of such institutions that does not reflect

the reality in many parts of the country. Schools are expected to have a full complement of

qualified and committed staff, plenty of textbooks and other learning resources, and well-

constructed and maintained physical facilities. Compared to this ideal, NAMCOL will

always come off as second best.

Nevertheless, in recent years it appears as if NAMCOL has attempted to meet the

expectations of its stakeholders by adding elements to the SEP that mirror what is available

in a conventional classroom. Rather than succumbing to public and political pressure, the

College has an obligation to take a leadership role in forging a new vision for education by

presenting genuine alternatives to the traditional model of schooling. Among the nations of

the world, Namibia has one of the highest percentages of learners studying at senior

secondary level through non-conventional means. As such, NAMCOL should be at the

vanguard of the ODL revolution, introducing new and innovative approaches. However, if

the College’s full-time and part-time staff do not believe that ODL methods can deliver

education of comparable (or even higher) quality, then it will be impossible to convince

political leaders and the general public that innovative approaches are worth trying.

In recent decades, education around the world has undergone a number of significant

changes, driven by several factors, including:

Massification of Education – For decades developing countries have aimed to

extend primary education to all their citizens, but this aspiration was given new

impetus by the adoption of the Millennium Development Goals in 2000. In Namibia,

the target of universal primary education has been extended to include the three

years of junior secondary schooling (Grades 8-10), and the Net Enrolment Ratio for

the first ten years of education now stands at 96.9%.78 However, as more and more

students successfully complete Grade 10, there is a corresponding increase in the

demand for places at senior secondary and higher education levels.

Qualifications Inflation – As increasing numbers of learners successfully complete

ever higher levels in the education system, the qualifications they achieve lose their

scarcity value. Since employers tend to use educational qualifications as a

78 Ministry of Education, EMIS [Education Management Information System], Education Statistics, 2010, Table 28.

82

mechanism for screening job applicants, those with higher level qualifications are

more likely to succeed. As a result, young people now stay on longer in education in

an attempt to gain a competitive advantage in the race to attain ever higher levels of

award.

Increasing Specialisation – In many industrialised countries, TVET systems have

developed with hundreds of different qualifications. Regardless of whether job-

seekers have the knowledge and skills to do the job, they can only be employed on a

probationary basis until they successfully complete a specialised training course that

is accredited through the national system. This development appears to be driven by

concerns about workplace safety, public liability and minimum standards of service

delivery on the part of both employers and governments.

Lifelong Learning – It is not uncommon for adults to return to education or training

in order to keep abreast of changes in their field of specialisation or to obtain

additional qualifications to enable them to change careers. In addition, increasing

numbers of adults without formal qualifications have sought to pursue further

studies on a part-time basis. This is particularly so in countries like Namibia where

the majority of people did not have access to secondary or higher education during

apartheid. Bates asserts that ‚< the lifelong learning market for formal university

and college courses is at least as great as the market for students leaving high school

for university and college‛.79 In many countries, government policy initiatives have

sought to promote flexible learning opportunities for such non-conventional

students.

Resource Constraints – Increased enrolments combined with the concerns of

funding bodies with regard to value-for-money at all levels of the education system

have contributed to growing pressure on financial and other resources for all

institutions. Typically, these pressures have led to a reduction in teacher-student

contact or higher teacher-student ratios, with a corresponding increase in the time

students must spend in independent study.

Changes in Philosophy – Although the above changes may have been driven by

resource constraints, they coincided with the application of theories/philosophies,

such as Social Constructivism/Constructionism, to the field of education. This has

lent greater support to innovations in teaching and learning, particularly the

introduction of resource-based learning.

Application of ICTs to Learning – Experiments with computer-mediated and

computer-assisted learning have been taking place since at least the 1970s. However,

79 Bates, “Technology and Lifelong Learning: Myths and realities,” 11.

83

the application of new information and communication technologies only began to

take off since the launch of the World Wide Web in the early 1990s and the roll-out of

broadband Internet connectivity. ICTs hold out the potential to add a ‘must-have’

value to education by making learning dramatically more enjoyable for learners, by

radically improving an institution’s productivity and by significantly reducing

costs.80

Impact of Technology on Concepts of Knowledge – Several authors have argued

that the rise of ICTs has transformed what is accepted as knowledge, how it is

created and reproduced. Most teachers and adults were raised during a period when

learning through books was the norm, which supports beliefs that knowledge is

objective and precise, is created through rational and scientific processes, and is

reproducible in a fixed form through the medium of print. However, for young

people who are exposed to global hypermedia, knowledge is viewed as transient,

open-ended and subject to multiple perspectives.81 Not only does this reflect a

cultural divide between youthful ‘digital natives’ and an older generation of ‘digital

immigrants’, but it may also have an impact on the way in which young people

think.82

Convergence of ODL and Classroom Instruction – In response to the success of

open universities, an increasing number of conventional institutions have begun to

make available on-line resources for conventional students through virtual learning

environments or learning management systems. In many cases, the two modes do

not operate as separate tracks but are merged into a single programme available to

all students, an arrangement known as flexible or blended learning. Today, nearly

all higher education institutions aspire to offering blended-mode programmes.

At school level, the greater availability of ICTs has also had an impact on classroom

instruction, though this has not been as rapid because of the limited resources

available at this level. Many of the developments have been driven by teachers

themselves, who have experimented with the use of new technologies to supplement

conventional classroom instruction. Increasingly, however, e-learning options are

80 John S. Daniel, Mega-Universities and Knowledge Media: Technology strategies for higher education (London, UK:

Kogan Page, 1996), 91; Bates, “Technology and Lifelong Learning: Myths and realities,” 13–16; Robert Fox and Allan

Hermann, “Unexpected Effects of New Technology Adoption,” in Distance Education and Technology: Issues and practice,

edited by David Murphy, Ronnie Carr, James Taylor & Wong Tat-meng (Hong Kong: University of Hong Kong Press,

2004), 56-74. 81 Daniel, Mega-Universities and Knowledge Media: Technology strategies for higher education, 102. 82 Marc Prensky, “Digital Natives, Digital Immigrants - Part 1”, 2001,

http://www.marcprensky.com/writing/Prensky%20-%20Digital%20Natives,%20Digital%20Immigrants%20-%20Part1.pdf;

Marc Prensky, “Digital Natives, Digital Immigrants, Part II: Do they really think differently?,” On the Horizon (MCB

University Press) 9, no. 6 (December 2001), http://www.marcprensky.com/writing/Prensky%20-

%20Digital%20Natives,%20Digital%20Immigrants%20-%20Part2.pdf.

84

transforming the way in which teachers perform their duties in mainstream schools,

as well as the way in which students learn.83

6.3 e-Learning

There is no universally-accepted definition of e-learning, though ICTs can be used by ODL

institutions for a variety of things, including:

web-based recruitment and registration of students;

delivering study materials or other learning content through a virtual learning

environment (VLE) or learning management system (LMS);

facilitating group and individual interactions with tutors, using threaded e-mails,

chat rooms, web-conferencing, etc.;

enabling students to interact with their peers or collaborate on joint projects;

supporting administrative processes, such as the submission of assignments or

reminding students of deadlines;

undertaking assessment of student performance, including such things as online

examinations or e-portfolios.

It is clear, then, that deciding to move into e-learning is not an all or nothing proposition.

Most educational institutions adopt different elements from the above list depending on a

variety of factors, including: the characteristics of the target group, their access to the

required technologies, the optimal design of learning experiences and the availability of

academic and technical support, as well as the relative costs of the different options.

NAMCOL plans to build capacity for a web-supported mode for delivering its courses. The

College’s e-Learning Business Plan spells out how the deployment of ICTs is meant to:

… give NAMCOL the capability to deliver world-class educational content and training

electronically in order to realise the benefits inherent in internet based tele-learning

systems such as speed of delivery, simplified enrolment, spatial and time freedom, easier

collaboration with peer institutions world-wide, enhanced process efficiencies, reduced

operating costs and increased revenue generation.84

NAMCOL envisages having dual- and parallel-modes of delivery. The dual-mode of

delivery entails providing paper materials and augmenting these with web-based academic

support. In this mode, print on paper remains the dominant way of delivering learning

content and the institution needs to have capacity to sustain it. In the parallel-delivery mode,

learners can opt to receive paper materials or retrieve them from the institution’s web-site.

The capacity required to develop web-based courses and to support learners online is much

greater than the College has at present. The College has, however, started to invest in

83 John Traxler, “Will student devices deliver innovation, inclusion, and transformation?,” Journal of the Research

Center for Educational Technology (Kent State University) 6, no. 1 (Spring 2010): 3-15. 84 NAMCOL (No Date) e-Learning Business Plan, p.3

85

developing capacity to support learners online. This investment is worthwhile as it puts the

College in a favourable position regarding the roll out of both web-based and blended

learning.

The review of NAMCOL’s staffing structure that was carried out by a team from Saide late

last year proposed three alternative models for introducing e-learning options and

compared the costs of each for different scenarios. These models included:

A. Print-based (paper learning materials) and Contact-supported (virtual, synchronous

tutorials at fixed centres);

B. Resource-based (learning materials accessed through CDs/DVDs) and Web-

supported (virtual, asynchronous tutoring, accessible wherever the learner can access

the Internet);

C. Web-dependent mix of on- and off-line teaching and support (fully on-line delivery

of course content, combined with virtual synchronous and asynchronous tutoring).85

While these may be the most-commonly used models for e-learning courses, the discussion

above suggests that a much wider variety of options is possible, using different

combinations of elements.

6.3.1 Paper-Based, Off-Line or On-Line Delivery of Learning Content

In industrialised countries, the development of e-learning is underpinned by a model of

ubiquitous connectivity, where learners have access to broad-band Internet anytime and

anywhere. This approach allows for cloud applications and institutional VLEs/LMSs to be

used to store and deliver learning content, as well as being the focal point for tutor-student

and student-student interactions. Such a model is unlikely to be realised in Namibia for the

foreseeable future. Although a branch of the West African Cable System (WACS) was

landed on the country’s coast earlier this year, resulting in a dramatic increase in Internet

capacity in and out of the country, connectivity within Namibia will remain patchy for some

years to come. It is simply not economically feasible at present to provide Internet coverage

for large parts of the country that are sparsely inhabited. Moreover, despite increased

competition between Namibian ISPs, the cost of Internet access is still high relative to

average disposal income, which makes extensive use of web-based learning unaffordable for

a majority of NAMCOL learners.

Alternative models for content delivery have been devised to address the problems faced by

potential learners in Namibia and other countries of the global South, where the Internet can

only be accessed infrequently at most. One option is for learners to avail of e-learning

materials stored on servers at designated centres, which can be downloaded to different

85 Mhlanga, Mays, and Randell, Towards an Enabling Staffing Structure at NAMCOL: A review of the staffing structure

in an ODL institution, 30–34.

86

types of electronic devices. The content on the local server can be updated periodically by

connecting to the network at the institution’s headquarters. Another possibility is for all of

the e-learning materials to be pre-loaded on portable storage devices, which can then be

used off-line with any computer the learner has access to.

Sugar on a Stick

The Sugar on a Stick initiative is a project of Sugar Labs, which developed the original

operating system for the hardware distributed under the One Laptop Per Child (OLPC)

programme. It uses a standard USB stick to store both the operating system and a full

course of study materials. When plugged into a computer from any of the major

manufacturers, the CPU automatically switches over to the OS on the stick, thus avoiding

potential problems with incompatible software or viruses. The learning materials on each

stick can be customised for different user groups, but typically include text and multi-media

content, activities and multiple-choice quizzes. Sugar on a Stick also keeps a record of each

learner’s progress so that this can be checked by a teacher. Once the memory stick has been

removed, the host computer resumes normal operations without any interruptions.

For more information, see: http://wiki.sugarlabs.org/go/Sugar_on_a_Stick

The fact that many of the College’s learners do not have access to the types of devices that

enable them to make use of digital content may prove to be a major constraint. However,

the cost of portable devices (laptops, netbooks, tablets or e-book readers) has dropped

considerably in recent years, making them more affordable for high-and middle-income

groups. Nevertheless, since the costs of publishing in electronic form are so much lower

than with paper materials,86 some educational institutions are changing over to e-books in

order to realise significant savings.87 For many NAMCOL programmes, the volume of paper

study materials given to each learner over a full course of study (six subjects at NSSO level

or a complete set of modules for one of the Professional Programmes) is quite considerable.

If the money saved on printing/digital copying, storage and distribution of these study

materials was used to offset the cost of a suitable device, this might prove more cost-

effective in the long term. It is recommended that a cost analysis of this proposal be carried

out and that this option be introduced on a pilot basis to test its feasibility.

86 Joern Meissner, “The Economics of E-Book Publishing,” Industry Blog, Dr Joern Meissner, Meissner Research

Group, March 17, 2010, http://www.meiss.com/blog/the-economics-of-e-book-publishing/; Motoko Rich, “Math of

publishing meets the e-book,” On-line Newspaper, The New Yourk Times, Media & Advertising Section, February 28, 2010,

http://www.nytimes.com/2010/03/01/business/media/01ebooks.html. 87 Mark Tran, “Arnold Schwarzenegger to scrap school textbooks for ebooks,” On-line Newspaper, Guardian, June 9,

2009, http://www.guardian.co.uk/world/2009/jun/09/arnold-schwarzenegger-school-textbooks-ebooks; California, State of;

Office of the Governor, “Leading the Nation Into a Digital Textbook Future - Governor Arnold Schwarzenegger,” Political

Promotion, June 8, 2009, http://gov.ca.gov/index.php?/fact-sheet/12455/.

87

6.3.2 Face-to-Face versus Virtual Tutoring

In 2004, Bernard et al. published a meta-analysis of 232 studies on the comparative impact of

distance education versus instruction in conventional classrooms. Although their findings

were mixed for a number of other variables, the researchers found that conventional

classroom instruction was favoured by students taking part in synchronous sessions.

Conversely, the attitudes and performance of DE students were more positive when virtual

academic support was provided through asynchronous, rather than synchronous, methods.

This may be because tutors tend to lapse into lecture-based, instructor-centred strategies

when facilitating synchronous sessions for students at a distance. In these circumstances,

the students perceive synchronous virtual tutoring as a poor replication of traditional face-

to-face classes, without any flexibility with regard to the time or venue where learning takes

place. Critically, the researchers also found that drop-out was substantially higher when

academic support was provided asynchronously when compared to synchronous tutorials.

They also note that synchronous academic support may be more appropriate for younger,

school-level learners.88

These empirical findings are supported by anecdotal evidence and the comments from

stakeholders consulted during this study. The pressure on NAMCOL to continue with its

existing model of face-to-face tutorials for the SEP is very strong. However, it is worth

considering how this can be modified to allow for the increased use of alternative forms of

instruction, based on the considerable volume of multi-media and e-learning materials that

the College has already developed. At present, many SEP learners cannot avail themselves

of these alternative learning resources because the equipment required to utilise them is not

available at the College’s tutorial centres. As a matter of urgency, NAMCOL should expand

its plan to provide laptops and digital data projectors to all of its centres. In order to ensure

that these are properly utilised and securely stored, it may be desirable to appoint part-time

ICT technicians at each centre. Unemployed school-leavers could be employed for this

purpose and provided with basic training in equipment maintenance and trouble-shooting,

though a dedicated phone-in help desk would also need to be established at NAMCOL

Head Office. This initiative could be financed by savings realised through cutting back on

the number of tutorial sessions during the week.

Students registered for any of the College’s Professional Programmes currently receive

academic support through vacation workshops held two or three times per year and may

have only limited contact with a tutor in between. It is worth considering the introduction

of elements of virtual, asynchronous tutoring from Model B in the Saide 2010 report on

NAMCOL’s staffing structure to provide opportunities for additional learner-tutor

interaction. Model B was found to be financially-sustainable in all the scenarios examined by

88 Robert M. Bernard et al., “How does distance education compare to classroom instruction? A meta-analysis of the

empirical literature,” Review of Educational Research (pre-publication version) (2004): 408–410.

88

the Saide consultancy team,89 indicating that it would be a cost-effective option. It is also

better suited to older, more mature learners who are likely to have regular access to Internet-

linked computers.

Although print-based content delivery with face-to-face support may remain the dominant

delivery mode, other approaches to the provision of e-learning are likely to form an

increasingly important part of the College’s business in future. In addition to outlining

some alternative models and estimating their costs, the Saide 2010 report also recommends

that NAMCOL review the strategic positioning from a human resource point of view,

particularly given the demands of the new delivery mode in terms of multi-media course

design, online learner support, and the general management of online platforms. The

rolling out of e-learning options for delivering courses is also likely to extend NAMCOL’s

market to the entire Southern African region and beyond. While there are a number of

potential problems associated with expanding educational delivery across international

borders, this opportunity may ultimately translate into an important stream for generating

revenue.

The Centre National d'Enseignement à Distance

The Centre National d'Enseignement à Distance (CNED or National Centre for Distance

Education) in France is a good example of an institution that offers courses throughout the

Francophone world. CNED offers a variety courses, ranging from Kindergarten through

Grade 12 and on to university level, as well as preparation for the competitive recruitment of

civil service training in various trades. Approximately 40% of its learners are based in

countries outside of France.

Success in this technology-intensive initiative depends very much on the ability of the

College to manage quality issues. The adoption of e-learning (and other ODL) technologies

do not, on their own, guarantee good instructional design, responsiveness to students or

economies of scale. Single-mode ODL institutions may only be able to achieve these aims by

increasing enrolments in a restricted range of courses. However, such massification of

education is normally accompanied by a form of bureaucratic organisation based upon

‚large-scale hierarchies and large-scale mass production‛ which detract from the experience

for students.90 Although the introduction of e-learning methods holds out the possibility of

reducing the reliance on bureaucratic structures and practices, this potential has yet to be

realised in most cases.

89 Mhlanga, Mays, and Randell, Towards an Enabling Staffing Structure at NAMCOL: A review of the staffing structure

in an ODL institution, 46. 90 Rumble and Latchem, “Organisational Models for Open and Distance Learning,” 110–112.

89

6.4 Changing Public Perceptions

As discussed in Section 3 of this report, the dominant perception of NAMCOL is as an

institution that caters for learners who fail in the formal school system. Whilst the public

generally appreciates this role, there is need to inform both learners and their parents of the

wider range of possible options for studying with the College to attain senior secondary and

higher level qualifications outside the conventional education system. It is this

complementary approach to learning that is poorly understood among the general public.

In addition, NAMCOL needs to address the wide-spread expectation that its tutorial centres

for the SEP should mirror what is provided in conventional classrooms. Changing public

perceptions is a long-term process that requires consistent effort over a number of years.

The need for a more aggressive advocacy and marketing strategy in order to improve

NAMCOL’s public image was underscored in this study. The aim should be to inform

political leaders, other key decision-makers and members of the public about what the

College offers and why it exists. Such a strategy needs to explain the rationale for the

College’s establishment and focus on the many positive things the College is doing. For

example, many of those consulted during the course of this study found it surprising that

the pass rates for NAMCOL SEP learners have improved dramatically over the years. It also

needs to publicise individual success stories, particularly among high-profile former

learners, such as politicians, business leaders and local celebrities. The introduction of

innovative models of delivering education and of high-status programmes will also go a

long way towards improving public perceptions of the College.

90

CONCLUSIONS Since NAMCOL became fully operational as a parastatal institution, it has made significant

strides to carry out its mandate of providing educational opportunities for adults and out-of-

school youth. Enrolments with NAMCOL have grown by over 60% over the past thirteen

years, and the College’s Secondary Education Programme now accounts for one out of every

three learners studying for the NSSC examination in Namibia. By diversifying its course

offerings and through enhancing the quality of the services it provides, NAMCOL has

managed to shake off many of the negative public perceptions that were articulated in the

early years after its establishment. The College has come to be accepted as a trustworthy

institution that is making a significant contribution to the nation’s development by

providing a safety net for those who have fallen or been pushed out of the formal education

system. Although stakeholders recognise NAMCOL’s successes, they are also quick to point

out its perceived shortcomings. However, many of the suggestions for improving the

College’s services appear to reflect the desire for NAMCOL to become more like existing

educational institutions that provide courses primarily through face-to-face sessions in

conventional classrooms.

As a dedicated open and distance learning institution, the College has an obligation to

demonstrate how learning opportunities can be provided through innovative approaches, as

well as making use of alternative media and ICTs, as mandated in Section 4(3) of the

NAMCOL Act. The College’s Management Team and Board of Governors need to review

the proposals listed in Appendix A in order to map out priorities for future development.

There is great potential for NAMCOL to evolve into a highly diversified institution that not

only increases access to education at secondary level but also addresses Namibia’s need for

middle-level skills through a wide range of post-secondary and TVET courses. In the

process of improving quality and expanding its markets, the College’s Management must

ensure that whatever programmes and courses are offered articulate with the rest of the

education system in the country. Increasing the use of e-learning technologies opens up

opportunities for NAMCOL to extend the market for its courses beyond the national

boundaries, while at the same time it offers new learning opportunities for Namibians

through collaborative arrangements with external institutions.

91

Appendix A: Summary of Suggestions Figure A (below) summarises all of the suggestions made by the stakeholders who took part

in these consultations in the form of a matrix.

FIGURE A – Product-Market Growth Matrix for NAMCOL

Products & Services

Existing New

Cli

ents

/Cu

sto

mer

s

Exis

tin

g

MARKET PENETRATION Low Risk – Low Cost

Enhance Quality of Existing SEP to

improve NAMCOL’s public image and to

attract more learners away from over-

crowded schools, through:

Improve monitoring of centres,

Employ permanent, part-time tutors,

Professional development for tutors,

Shorten turn-around of assignments,

Motivate learners (regular homework),

Foster discipline among learners,

Increase parental involvement,

Increase use of existing digital and

multi-media resources at SEP centres.

Extend PETE Programme, with

additional specialisations (e.g. business,

pre-med).

PRODUCT DEVELOPMENT Low Risk – Moderate Cost

Provide career guidance and academic

counselling,

Introduce examinations on demand,

NSSC Higher level courses,

e-Learning materials for Exam

Preparation and After School study,

Diploma & degree level programmes for

PP completers,

Short course in Computer Literacy for all

NAMCOL learners,

Course on a USB Stick delivering SEP

study materials,

Study materials pre-loaded on low-cost

devices,

Elements of asynchronous, virtual

tutorial support for PP learners.

New

MARKET DEVELOPMENT Moderate Risk – Moderate/High Cost

Closer integration of SEP with formal

education system to enable cross-

enrolments,

Exam Preparation Workshops for

learners from conventional schools,

Short courses based on modules from

PP to provide unemployed school-

leavers with marketable skills (e.g.

child-minding, homework helpers,

home-based care),

Act as the local agent for regional and

international open universities and/or

polytechnics offering ODL courses.

DIVERSIFICATION

High Risk – High Cost

Adult Bridging Year Programme for

AUPE completers,

NTA Foundation Qualification (NQF L1),

New tertiary level programmes (e.g.

based on NSSC Higher level courses),

TVET and FE courses,

Develop Yetu Yama Centre for TVET.

Consultancies to develop self-

instructional materials for other bodies

(e.g. NIPAM, Association for the Deaf),

Consultancies to convert existing

materials from F-F workshops to e-

Learning resources for corporate training,

ICTs in Education course for Teachers.

92

FIGURE B: Market Penetration through Quality Enhancement Option Target Group &

Projected Demand

Strengths Weaknesses Opportunities Threats/Challenges

MP.1 Improve Monitoring of Tutorial Centres Priority: Very High Existing SEP learners

and their parents

Demand:

Moderate to High

Better supervision of P-T staff

Ensure that learners get what

they pay for

Assumes that regular attendance

by tutors, on its own, will result in

improved outcomes

Possible partnership with

BOCODOL to devise

monitoring protocols

Higher costs for:

extra QA staff,

additional visits to centres,

monitoring procedures.

MP.2 Employ a small core team of Permanent Tutors for SEP Priority: High Existing and new SEP

learners

Demand:

Very High

Expected to improve the quality

of support for learners,

Would also reduce tensions with

MoE ROs & School Management

Questions about:

availability of qualified

teachers, particularly in rural

areas,

compatibility with NAMCOL’s

mandate

Possible financial support

from MoE.

Possible to cut back on

number of F-F sessions per

week and substitute with

existing multi-media

resources.

Very high costs would

undermine sustainability of

SEP.

MP.3 Provide Professional Development for P-T Tutors and F-T NAMCOL

Staff

Priority: High

Existing and new

tutors for SEP & other

courses

Demand:

Moderate to High

NAMCOL has substantial

experience of developing and

delivering professional courses

through ODL – this model could

be adapted for training tutorial

staff.

Training for tutors will have

limited credibility, unless it is

accredited by a recognised HE

institution.

Previous attempts to provide non-

accredited training for tutors have

not been successful.

Accredited programme would

be attractive to tutors.

May be possible to recoup

some costs through fees paid

by tutors.

More qualified tutors may

demand higher wages.

Additional costs for NAMCOL

undermine sustainability of

SEP.

MP.4 Shorten Turn-Around Time for Marking & Returning Assignments Priority: Very High Existing Learners and

Tutors at SEP centres

Demand:

Moderate to High

New procedures introduced

since 2005 have already reduced

turn-around times.

System of moderating assignment

marks centrally needs to be

reviewed.

Review each assignment in a

F-F session so that learners get

timely feedback. Marked

assignments can follow later.

Marks awarded by local tutors

may be adjusted downwards

by moderators, leading

learners to question their

competence.

93

Option Target Group &

Projected Demand

Strengths Weaknesses Opportunities Threats/Challenges

MP.5 Motivate Learners (through additional activities & peer-marked

homework)

Priority: High

SEP learners and their

parents

Demand: High

Existing self-study materials

already have in-text and end-of-

unit exercises that could be

adapted for this purpose.

Since marks for homework cannot

be included in the final

assessment, learners may not take

it seriously.

Tutors may argue that they have

even less time to cover the

syllabus.

Research has shown that

increased interaction between

learners and course content

leads to biggest learning gains.

Some additional costs incurred

for photocopying/printing

additional worksheets.

MP.6 Foster Greater Discipline among SEP Learners Priority: High SEP learners

Demand:

Moderate to High

This would receive a lot of

popular support from parents

and politicians, but may not be

as well-received by learners

themselves.

Hardly any difference between

NAMCOL and the conventional

school system.

Contrary to the principles of open

learning because it further

restricts flexibility.

NAMCOL needs to formalise

its policy on continuous

assessment and its code of

conduct for learners.

Can be implemented on a pilot

basis to assess learner attitudes

and impact on exam results

and/or learning gain.

Since it would involve

additional duties for HoCs,

greater costs may be incurred.

Learners who are disciplined

for unexplained absences

likely to raise complaints.

MP.7 Increase Involvement by Learners’ Parents Priority: Low- moderate SEP learners and their

parents

Demand: Low

Though parents may not be able

to assist learners with subject-

specific explanations, they

should have their children’s

welfare at heart.

Previous efforts to involve parents

have not met with much success.

HoCs and Tutors may not be seen

as approachable by parents.

Increased understanding of

what NAMCOL is attempting

to do.

Potential for improving exam

results and/or learning gain.

Increased complaints from

parents who expect higher

standards of service delivery.

94

Option Target Group &

Projected Demand

Strengths Weaknesses Opportunities Threats/Challenges

MP.8 Increase the Use of Digital & Multi-media Resources at SEP Centres Priority: Very High All SEP learners

Demand:

Potentially High

Over the last five years,

NAMCOL has developed a

range of multi-media and digital

resources, which are currently

under-utilized.

Belief that face-to-face teaching is

the most important component in

education is very strong among

learners and their parents.

Acceptance of alternative models

may be slow.

Can be implemented on a pilot

basis to assess learner attitudes

and impact on exam results

and/or learning gain.

Additional costs can be

financed by cutting back on F-

F tutorials.

Additional costs for providing,

maintaining and securing

hardware at centres.

MP.9 Extend PETE Programme with additional specialisations Priority: High SEP- and school-

leavers who need to

improve their

symbols.

Demand: Moderate

Existing programme has had a

positive impact on a very

limited number of learners.

NAMCOL has expertise to

reduce F-F inputs and increase

self-instructional elements.

High costs of existing model limit

its replicability.

Successes to date with existing

PETE Programme not as good as

expected.

Possible financial support

through ETSIP.

At least some learners able to

pay full fees, so it may be

possible to expand on self-

financing basis.

Potential competition from

UNAM, TUCSIN, private

tutors.

Not sustainable in its present

form.

95

FIGURE C: Market Development Option Target Group &

Projected Demand

Strengths Weaknesses Opportunities Threats/Challenges

MD.1 Integrate SEP with Formal Education System Priority: High All Grade 10, 11 & 12

learners in

conventional schools.

Demand:

Moderate to High

NAMCOL self-instructional

materials already widely used in

schools.

Already being done in some

cases.

As College introduces e-learning

options, this may prove

attractive to school students

with access to ICTs.

Lack of confidence in the quality

of NAMCOL’s services among

MoE officials and school

authorities.

Questions whether it is feasible

for NAMCOL to offer subjects

where no qualified teacher is

available.

Increased income through

existing funding formula for

SEP.

Resistance from school

authorities, especially if this

would involve a loss of

income.

MD.2 Open up Exam Preparation Workshops to School-Based Learners Priority: Low All Grade 10 & 12

learners in

conventional schools.

Demand: Moderate

Vacation workshops already

being run by the College – easy

to increase capacity at existing

centres and extend to other

venues.

Need to revisit the programme for

vacation workshops and retrain

tutors to adopt a new model.

Possible financial support

through ETSIP.

Possibly self-financing

through fees for learners not

registered with NAMCOL.

Can be implemented on a pilot

basis to test the market.

Potential competition from

schools or groups of teachers

setting up their own exam

preparation workshops,

programmes.

MD.3 Short Courses in Marketable Skills for Unemployed School-Leavers Priority: Low Unemployed school-

leavers

Demand:

Very High

May be possible to adapt

existing materials from certain

PP courses (e.g. CBM, ECD,

CWCY).

Learners can be given credit for

modules completed toward full

PP qualification.

School-leavers expect to find

salaried jobs and may not be

interested in employment

opportunities in the informal

sector.

NAMCOL lacks credibility among

youth service organisations.

Linkages with Namibian

Youth Credit, Credit for Youth

in Business or TIPEEG

schemes,

Possible financial support

through ETSIP, NYC, NYS or

other GRN sources

Competition from existing

providers of training for

unemployed youth.

96

Option Target Group &

Projected Demand

Strengths Weaknesses Opportunities Threats/Challenges

MD.4 Local Agent for other Open Universities and/or Polytechnics Priority: High School-leavers not

catered for by

existing HE providers

Demand:

High to Moderate

Experience with existing PP

courses provides the basis for

expansion into the higher

education sub-sector.

NAMCOL has a country-wide

presence capable of providing

administrative support for

learners registered with other

ODL providers.

College may need to upgrade its

infrastructure and staffing at

regional level in order to meet

minimum standards for learner

support required by partner

institutions.

Partnerships with open

universities or polytechnics in

the region and internationally.

Ideally, facilities and staff at

NOLNet-affiliated centres

could be used to support

students registered with

foreign HE institutions.

Awaiting Cabinet decision on

OUN proposal.

NOLNet would be well-placed

to take on this function, but

lacks capacity.

Possible competition from

UNAM, PoN, IUM, IOL, other

OUs.

97

FIGURE D: Product Development Option Target Group &

Projected Demand

Strengths Weaknesses Opportunities Threats/Challenges

PD.1 Career Guidance and Academic Counselling Priority: High Existing SEP learners

Demand:

Low at present

NAMCOL already distributes

materials and runs workshops

to develop learners’ capacity for

independent study.

Relatively few options currently

available for SEP learners.

Difficult to provide this at time of

enrolment.

As the College expands the

range of options available to

learners, then counselling

them on alternatives begins to

make sense.

If provided on a 1:1 or small

group basis, this service could

be quite costly.

Employment opportunities are

at the mercy of the wider

economy.

PD.2 Introduce Examinations on Demand System Priority: Low but may be a non-starter

SEP learners and

Certain learners in

conventional schools

Demand:

Low to Moderate

Introduces greater

flexibility/openness

Reduces problems with:

over-crowding of exam

centres,

delays in marking, etc.

Concerns about:

security of system,

likelihood that students will

cheat,

lowering of standards.

Cooperation with DNEA &

NEACB essential

Public perceptions of a 2-tier

exam system,

Loss of confidence in

qualifications obtained

through studying with

NAMCOL

PD.3 NSSC Higher level Courses Priority: Very High Existing NSSCO

students with

NAMCOL and in

conventional schools

Demand: Very Low

NAMCOL has a lot of

experience developing courses

of this kind.

Compatible with existing

systems for delivering SEP

and/or PETE.

Better-performing students have

already been ‘creamed off’ by

schools.

Public perceptions that NAMCOL

learners achieve poor results does

not inspire confidence.

Possible financial support

through ETSIP.

Increase demand by

combining subjects in coherent

fields of study to prepare

learners for NQF L5 or L6

awards.

Developing new study

materials would incur high

costs.

Low student numbers would

increase unit costs.

May not be sustainable.

PD.4 e-Learning Materials for Exam Preparation and After-School Study Priority: High Existing SEP learners

School-based learners

Demand:

Moderate to High

Relatively easy to convert

existing exam prep booklets into

e-learning resources.

Greater interactivity and more

immediate feedback should lead

to improved results.

Few potential users currently have

access to the technology needed to

avail of these resources.

Possible financial support

from ETSIP.

Possible partnership with

NOLNet or hardware retailers.

Competition from commercial

e-learning providers.

98

Option Target Group &

Projected Demand

Strengths Weaknesses Opportunities Threats/Challenges

PD.5 Diploma and Degree Programmes for PP Completers Priority: High Existing PP

completers.

Adults and school-

leavers seeking HE

qualifications

Demand: Low

This would be a natural

progression for NAMCOL’s

expansion into HE sub-sector.

College already has experience

in developing and delivering

courses in these subject areas.

Questions about the College’s

power to make academic awards

at degree and diploma level.

NAMCOL currently does not

have facilities and staff expertise

to be credible as a degree-

awarding body.

Possible partnerships with

other regional and

international open

universities.

Possible duplication of courses

available at UNAM or PoN,

though they may not be

meeting current demand or

allow RPL students to enrol.

PD.6 Short Course in Computer Literacy for all NAMCOL Learners Priority: Very High All Learners

registered for SEP or

PP

Demand: Very High

NAMCOL has substantial

experience of delivering ICDL.

Wealth of OERs available to

form the basis for a computer

literacy course.

Lack of computer lab

infrastructure in most regions

means that many learners will not

be able to access the service.

Learners will incur additional

travel costs to attend courses.

Can be introduced on a pilot

basis to assess feasibility, costs,

potential problems and learner

attitudes.

Maximise use of facilities at

CBLCs.

Likely to increase numbers

registering for ICDL.

Substantial additional costs

may be occurred for:

instructors/facilitators,

courseware/study materials,

equipping and staffing other

centres.

PD.7 Deliver SEP and/or PP Study Materials using Course on a USB Stick Priority: High Existing SEP and PP

Learners

Demand:

Low (SEP Learners)

Moderate (PP

Learners)

Study materials for all courses

already existing as computer

files, which can easily be

converted for digital delivery.

A number of F-T and P-T staff

have been trained to develop e-

learning resources.

Lack of expertise with software

program for this initiative.

NAMCOL staff will need to train

themselves in this system, but

high-cost external assistance may

be needed to debug system.

NAMCOL has no experience of

providing software support.

Can be introduced on a pilot

basis to assess feasibility, costs,

potential problems and learner

attitudes.

Substantial staff time will need

to be devoted to setting up this

option. Economies of scale

will not be realised if this

option is found to be

unfeasible after pilot phase.

99

Option Target Group &

Projected Demand

Strengths Weaknesses Opportunities Threats/Challenges

PD.8 Deliver SEP and/or PP Study Materials pre-loaded on Low-Cost

Devices

Priority: Moderate

Existing SEP and PP

Learners

Demand: High

As above As above, but in addition:

NAMCOL does not have any

experience of supplying hardware

or providing software support.

Can be introduced on a pilot

basis.

Partnerships with local

companies to supply hardware

and software support, perhaps

through a voucher system.

As above, but in addition:

High costs of supplying

hardware and providing

software support may not be

fully offset through savings on

reproduction costs.

PD.9 Introduce Elements of Asynchronous, Virtual Tutoring for PP

Learners

Priority: High

Learners registered

for selected PP

courses with access to

Internet-linked

computer.

Demand:

Low (at present)

A number of F-T and P-T staff

have been trained to create

courses on Moodle.

COL may be able to assist with

external hosting of a limited

number of online courses.

NAMCOL currently lacks the ICT

facilities to carry out this initiative

in-house.

NAMCOL lacks the expertise to

manage and support this initiative

in-house.

Can be introduced on a pilot

basis to assess feasibility and

learners’ attitudes.

NAMCOL staff can develop

skills needed for successful

virtual tutoring through

experimentation with different

approaches.

Considerable investment

required to:

upgrade ICT infrastructure

train staff

convert materials for online

delivery,

provide technical support.

Expected economies of scale

may not be realised if mode is

found to be unfeasible

100

FIGURE E: Diversification Option Target Group &

Projected Demand

Strengths Weaknesses Opportunities Threats/Challenges

D.1 Adult Bridging Year Programme for AUPE Completers Priority: Very High AUPE completers

and other adults who

did not finish junior

secondary

Demand:

Moderate to Low

NAMCOL’s experience in

developing and delivering

general education courses at

Grade 10 level makes it well

placed to take over

responsibility for the BYP

AUPE is delivered primarily

through conventional F-F

sessions.

Studying through ODL approach

places greater demands on

learners at this level.

Cooperation with DAE.

Possible funding from ETSIP

or MoE.

Opens up a new market to

make up for declining

enrolments for NAMCOL’s

JSC courses.

BYP may be viewed as a

natural extension of the work

of DAE staff.

Involvement by NAMCOL

may be viewed as competition.

D.2 NTA Foundation Qualification Priority: High Employed and

unemployed adults

with no formal

qualifications

Demand:

High to Moderate

NAMCOL’s experience in

developing ODL and blended

learning courses which are more

cost-effective than conventional

F-F training.

Studying through text-heavy ODL

materials is not possible for those

with limited ability to read or

write in English.

ODL resources for this

programme would need to be

media rich.

More F-F support also required.

Possible funding through NTA

or directly from employers

who wish to introduce work-

oriented adult basic education.

Makes higher level TVET

accessible to a new group of

learners.

Possible competition from

other training providers

D.3 New Tertiary Level Courses offered by NAMCOL Priority: High School-leavers not

catered for by

existing HE providers

Demand:

High to Moderate

Experience with existing PP

courses provides the basis for

expansion into the higher

education sub-sector.

Presence in every political

region of the country.

NAMCOL has limited experience

with curriculum development,

assessment and certification of HE

students.

College lacks minimum levels of

infrastructure, qualified staff and

other resources to be credible as a

HE institution.

Partnerships with open

universities or polytechnics in

the region and internationally.

Awaiting Cabinet decision on

OUN proposal.

Failure to obtain core &

development funding from

NCHE or MoE.

Possible competition from

UNAM, PoN, IUM, IOL, other

OUs.

101

Option Target Group &

Projected Demand

Strengths Weaknesses Opportunities Threats/Challenges

D.4 Technical & Vocational Education and Training Courses Priority: Very High Adults without

secondary

qualifications

School drop-outs

Grade 10 & 12 school-

leavers

Demand: High

Self-instructional materials offer

a cost-effective alternative for

the theoretical components of

TVET courses.

NAMCOL has very limited

experience with the provision of

practical components for TVET.

Possible funding through

NTA.

Possible partnerships with

VTCs and/or COSDECs.

Possible partnerships with

international providers of

TVET.

Failure to make arrangements

for hands-on training would

severely limit the type of

TVET that NAMCOL could

offer.

D.5 Develop Yetu Yama Centre for Hands-On Components of TVET

Courses

Priority: High

Unemployed school-

leavers and adults

who cannot gain

admittance to VTCs

or COSDECs.

Demand: Moderate to

High

Existing buildings at Yetu Yama

were expressly built for practical

aspects of training for specific

trades.

Relatively little expenditure

required to restore and re-equip

buildings.

NAMCOL has no track record of

developing or delivering TVET

courses in traditional trades.

College lacks qualified staff to

provide such training.

Lack of hostel buildings to

accommodate trainees.

NAMCOL can demonstrate

that an alternance training

model is more cost-effective

that conventional TVET at

VTCs and COSDECs.

Could possibly lead to

expansion in partnership with

other TVET bodies.

Failure to receive capital

funding from NTA or other

funders for building the

centre.

No guarantee from NTA that

core funding will be available

to cover running costs.

Shortage of qualified TVET

trainers in Namibia.

D.6 Consultancies to develop Self-Instructional Materials for Other

Bodies

Priority: Low

Target groups

identified by partners

Demand: Low

NAMCOL has expertise in

developing self-instructional

materials in paper, audio &

video formats

NAMCOL’s poor public image

may not inspire confidence.

Potential partners: NIPAM,

Association for the Deaf

Possible competition from

IOL, private training providers

102

Option Target Group &

Projected Demand

Strengths Weaknesses Opportunities Threats/Challenges

D.7 Consultancies to develop e-Learning Materials for Corporate

Training

Priority: Low

Employees of

corporate clients

Demand:

Low to Moderate

As NAMCOL staff gain more

experience in the development

of e-learning resources, the

College’s credibility in this field

will grow.

NAMCOL’s poor public image

and lack of experience with

corporate training may not inspire

confidence.

Currently, no dedicated staff

member to proactively contact

potential clients or investigate

possibilities.

Potential partners:

Gov’t ministries (possibly in

partnership with NIPAM)

large retailers,

other large employers of

office workers.

Trainers currently employed

by clients may view the move

to e-learning as a threat

D.8 Introduce ICTs in Education course for Teachers Priority: Moderate Teachers in

conventional schools

NAMCOL P-T Tutors

NAMCOL F-T Staff

Demand:

Moderate to High

A number of F-T and P-T staff

have already received

introductory training.

A considerable number of OERs

are available online that could

be used as the basis for a course.

NAMCOL has only very limited

experience in this area and,

therefore, lacks credibility as

provider.

Funding may be available

through ETSIP or MoE.

May be (partially) self-

financing through fees.

Possibility of partnering with

a HE institution to offer a

modular programme leading

to a post-graduate

qualification.

Maximise use of existing

CBLC facilities.

May be viewed as competing

with initiatives being

undertaken by NOLNet, HE

institutions or other bodies.

May not attract sufficient

learners to recoup the high

costs of course development

and delivery.

103

APPENDIX B: Persons Consulted

Individual Interviews, Focus Groups & Workshops

25 July 2011

14:30 The Right Hon. Nahas

Angula

Prime Minister, Government of the Republic of

Namibia (formerly Minister of Education and Culture from 1990 to 1996, and

Minister for Higher Education, Vocational Training, Science and

Technology from 1996 to 2006)

26 July 2011

Mr L. Shilongo Planning: Capital & Operations Budget Officer,

NCHE

27 July 2011

09:00 Mr Heroldt Murangi Director: NAMCOL

Mr Jan Nitschke Deputy Director: Programmes & Materials

Development

Ms Petrina Kamati Deputy Director: Finance & Administration

Mr Martin Strauss Manager: NAMCOL Central Region

Ms Dina Haufiku Manager: NAMCOL North-Eastern Region

Mr Paavo Pea Manager: NAMCOL Northern Region

Mr Muatumbulange Manga Member: NAMCOL Board of Governors

Mrs Charlotte Keyter Member: NAMCOL Board of Governors

11:00 Ms E. Mbuye Director: National Council for Higher Education

Ms Nangula Lipumbu Representative: NCHE

14:30 Mr Cleo Ono Director: Windhoek Branch

Namibian Chamber of Commerce & Industry

14:30 Dr Delvaline Möwes Director: Centre for Open & Lifelong Learning

Polytechnic of Namibia

Mr Jerry Beukes Director: Programme Development & Registration

Ms Georgina Avard Coordinator: Courseware Development, COLL

Ms Leena Kloppers Instructional Designer, COLL

Ms Judith Britz Coordinator: Academic Support, COLL

Ms Yvonne Tjizumaue Coordinator: Administrative Support, COLL

Ms Antonia Goliath Senior Faculty Officer, Office of the Registrar

Mr Richard Williams Senior Examinations Officer, Office of the Registrar

28 July 2011

08:45 Ms Audrey Poulton Programme Developer: Science & Mathematics,

PMD

104

Ms Lucia Oarum Area Coordinator: NAMCOL Southern Region

Ms Fiina Iivula Learner Support Officer: Examinations, MSS

Mr Rehabeam Amadhila Bookshop Administrator, F&A

Ms Willemien Louw Programme Developer: Commerce, PMD

Mr Kriana D. Nekongo Assistant Accountant, F&A

Mr Lucas N. Tjitunga Distance Education Coordinator, MSS

Ms Uajoroka Kazombiaze Distance Education Coordinator, MSS

10:30 Ms Leopoldine Amadhila Policy Analysis, Research, Monitoring & Evaluation

Officer, PAD, MoE

12:00 Mr Josaphat-Kashindy

Andreas

Executive Secretary: NOLNet

14:30 Dr Trudie Frindt Director: Centre for External Studies, UNAM

Dr Anthony Brown Student Support, CES

Ms Elis Veufer Student Support, CES

Dr Agathe Lewin Materials Development, CES

Ms Ennie Tjiramba Student Support, CES

Mr Jacks Ndimwedi Student Support, CES

1 August 2011

14:30 Rev. Dr Tshapka tsha-

Kapolo

Director: Faith, Justice & Society Unit,

Council of Churches in Namibia

2 August 2011

10:00 Mr Justin Ellis Manager & Consultant, Turning Points Consultancy

CC (formerly Under-Secretary for Culture & Lifelong Learning, MoE and

Member of the NAMCOL Board)

11:00 Hon. Zulu Shitongeni Regional Councillor

Hon. David Martin Regional Councillor

Hon. Shikwetapo

Haindongo

Regional Councillor

Hon. Rachel Jacob Regional Councillor

Hon. Nic Kruger Regional Councillor

Mr Immanuel Hanghome Representing Hon. Frederick Arie, Regional

Councillor

Hon. Edward Wambo Regional Councillor

Hon. Phillupus W.

Katamelo

Regional Councillor

Hon. S. B. Booys Regional Councillor

Hon. V. Kandorozu Regional Councillor

Mr Shaun Fredericks Chief Clerk, Windhoek East Constituency, Khomas

Region

Mr Ben Boys Regional Director of Education, Hardap Region

105

14:15 Hon. John Mutorwa Minister of Agriculture, GRN (formerly Minister of Basic Education, Sport & Culture between 1996

and 2006)

3 August 2011

09:00 –

10:00

Mr Ian Gicheru Manager: Vocational Training Provider Support

Namibia Training Authority

11:00 Mr Josia S Udjombala Director: Ministry of Education, Khomas Region

Ms Thea Seefeldt Deputy Director: MoE, Khomas Region

Ms Lourencia !Gaoses Inspector of Schools: MoE, Khomas Region

Mr Paulus Lewin Inspector: MoE, Khomas Region

Ms Eveline Benjamin Senior Education Officer: MoE, Khomas Region

Mr Steve Kaangundue Senior Education Officer: MoE, Khomas Region

Ms Selma Gqwede Inspector of Schools: MoE, Khomas Region

Mr Urgans Kaibiva Inspector of Schools: MoE, Khomas Region

14:30 Hon. E. Katjiku Regional Councillor: Daures Constituency, Erongo

Region

15:30 Mr Muesee Kazapua Head of Department: Networking & International

Relations, National Youth Council of Namibia

Mr Samuel Aochamub National Youth Council (NYC)

Mr George Kambala Secretary: Finance, Khomas Region

Namibian National Students’ Organisation

(NANSO)

Mr T. I. Angala Secretary: Political Affairs, NANSO

Mr Vaino Johannes National President,

Namibia Young Christian Workers

4 August 2011

11:15 Mr Alfred Ilukena Permanent Secretary: MoE

12:00 Ms Claudia Uazembua

Tjikuua

Under Secretary: Lifelong Learning, MoE

16:00 Ms Glenda Beukes NAMCOL Grade 12 Student

Ms Ndinelago Kangolo NAMCOL Grade 12 Student

Ms Rachel Amupanda NAMCOL Grade 12 Student

Mr Markus Ndeshi NAMCOL PETE Student

Ms Monika Shilongo NAMCOL PETE Student

Ms Rebecca Kamanda NAMCOL Grade 12 Student

Mr Frementle Kaangundue NAMCOL PETE Student

106

Mr Gino Vanelie Tjozongoro NAMCOL PETE Student

Mr Nendongo Simeon NAMCOL PETE Student

Mr Salomo Ndapandula NAMCOL PETE Student

Ms Ndandi Onesmus NAMCOL PETE Student

5 August 2011

08:30 Mr Beanz Ngatjizeko Director: Adult Education , MoE

09:30 Ms Sandra van Zyl Deputy Director: Higher Education, MoE and

Assistant Programme Manager: ETSIP

14:00 Ms Hilya Nghiwete Under Secretary: Finance & Administration, MoE

14:45 Mr Wilfred Kuria Director XNet Trust

16:00 Ms S. Moyo Part-time Tutor for the NAMCOL PETE

Programme

Mr R. Machipisa Part-time Tutor for the NAMCOL PETE

Programme

Ms L. Fredericks Part-time Tutor for the NAMCOL PETE

Programme

Mr T. Hadzoyi Part-time Tutor for the NAMCOL PETE

Programme

Mr A. Mpandi Part-time Tutor for the NAMCOL PETE

Programme

Mrs J. Johannes Part-time Tutor for the NAMCOL PETE

Programme

Mr A. T. Shilundo Part-time Tutor for the NAMCOL PETE

Programme

10 August 2011

09:00 Mr. Clemence Kashuupulwa Governor of Oshana Region

11:00 Lukas Laina NAMCOL PETE Learner

Matthew Gutrun NAMCOL PETE Learner

Shafuda Johanna NAMCOL PETE Learner

Amupolo Laina NAMCOL PETE Learner

Negumbo Teopolina NAMCOL PETE Learner

Iindongo Aino NAMCOL PETE Learner

Velishavo Taini NAMCOL PETE Learner

Pohamba Emilia NAMCOL PETE Learner

Viktonna Ndemwoongela NAMCOL PETE Learner

Aili Amadhila NAMCOL PETE Learner

Helena Nantana NAMCOL PETE Learner

Martha Benhard NAMCOL PETE Learner

Timotheus Hilya NAMCOL PETE Learner

107

Amodhila Enata NAMCOL PETE Learner

Samuel Klaudia NAMCOL PETE Learner

Jahodo Liina NAMCOL PETE Learner

Aino Nuunyango NAMCOL PETE Learner

Frieda Halwoondi NAMCOL PETE Learner

Akuunda Tuyimo NAMCOL PETE Learner

Helena Moses NAMCOL PETE Learner

Mandume Sylivia NAMCOL PETE Learner

Natanael Noibert NAMCOL PETE Learner

Charles Lazarus NAMCOL PETE Learner

Kalola Hilde NAMCOL PETE Learner

Shipahu Gabriel NAMCOL PETE Learner

Erasmus Kashululu NAMCOL PETE Learner

Nghiyalua Aron NAMCOL PETE Learner

Johannes Filippus NAMCOL PETE Learner

13:00 Ndamono Fredrick

Shimwandi

Parent of NAMCOL Learner

Ndamologhenda Shaalukeni Parent of NAMCOL Learner

Martha Kapengwe Parent of NAMCOL Learner

Teopolma Nepenbe Parent of NAMCOL Learner

Namusheshe Sakaria Parent of NAMCOL Learner

Frans Shaalukeni Parent of NAMCOL Learner

15:00 Ms Selma Amakutuwa Area Coordinator: NAMCOL Northern Regional

Office

Ms Lovisa S. Kafugula Head of Centre

Mrs Heloi Heela Head of Centre

Amadhila Rosina NAMCOL Tutor

Aina Shilongo NAMCOL Tutor

Mrs Mangundu Beata NAMCOL Tutor

Mr Wasokish Irpringe NAMCOL Tutor

Uushona Wilhelmina NAMCOL Tutor

Ndeunyema Alpha NAMCOL Tutor

Awene Maria NAMCOL Tutor

Nepembe Gersen NAMCOL Tutor

Robert Nsundamo NAMCOL Tutor

Mukumanyeni Martha NAMCOL Tutor

Melchior Fenny NAMCOL Tutor

Ndeyapo Mwahangeshopwa NAMCOL Tutor

Shaduka Gelesia NAMCOL Tutor

Helena Ashivudhi NAMCOL Tutor

Mr I. Aron Evululuko NAMCOL Tutor

Mr P. Nahipondoka NAMCOL Tutor

Mr. A.J. Kaine NAMCOL Tutor

Mr. M. Kaine NAMCOL Tutor

108

Mr. M. Shadjuuka NAMCOL Tutor

Mr. T. Hamutenya NAMCOL Tutor

Shilongo Levi NAMCOL Tutor

109

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Daniel, John S. Mega-Schools, Technology and Teachers: Achieving Education for All. Open & Flexible Learning Series.

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Denzin, Norman K, and Yvonna S Lincoln. ‚The Discipline and Practice of Qualitative Research.‛ In The Sage

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Du Vivier, Ed. Financing NAMCOL into the Future: A study of the College’s efficiency, cost-effectiveness, fee structure

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Fentiman, Alicia. Tracer Study of Former NAMCOL Learners. Research Report. Cambridge, UK: International

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Gauthier, Cindy. ‚Case Study: Vancouver Learning Network (Secondary), Vancouver, Canada.‛ In Open

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%20Digital%20Natives,%20Digital%20Immigrants%20-%20Part2.pdf.

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Open and Distance Learning, edited by Hilary Perraton and Helen Lentell, 4:117-140. Review of distance

111

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112

APPENDIX D: Questions for Interviews with MoE Officials

113

APPENDIX E: Statistical Tables

TABLE E.1 - Enrolments with the Namibian College of Open Learning, 1998-2011

No.Programme and Courses 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011

Total

Enrolments

, 1998-2011

Average

Number of

Years required

to complete

Course

Total Head

Count

Percent of

Total

Enrolments

1. ENROLMENTS 19,943 21,231 23,202 25,042 32,306 26,592 25,385 26,953 28,521 28,432 27,247 27,949 32,626 31,321

1.a SECONDARY EDUCATION PROGRAMME : Total Students 19,943 21,231 23,202 25,042 32,306 26,460 25,079 26,701 28,090 27,858 26,505 26,977 31,204 29,759 386,997 181,802 95.0%

- JSC Enrolments 9,504 10,664 12,236 12,409 17,386 14,012 13,272 13,317 13,577 13,192 11,689 10,412 10,687 9,807 172,164 1.80 95,647

- NSSCO Enrolments (formerly IGCSE and St10) 10,439 10,567 10,966 12,633 14,920 12,448 11,807 13,384 14,513 14,666 16,319 17,842 20,242 20,832 201,578 2.50 80,631

1.b PETE and other General Education Programmes: Total Students 100 200 116 156 0.5%

- PETE Enrolments 100 200 116 156 572 1.00 572

1.c PROFESSIONAL PROGRAMME: Total Students 132 175 146 279 366 395 404 897 1,056 3.4% - ECC Enrolments 185 210 395 1.00 395

- CED Enrolments (1st & 2nd Year) 104 86 106 128 131 150 189 211 302 1,407 2.00 704

- CLGS Enrolments 92 192 201 166 124 155 930 1.00 930

- CYP Enrolments 28 28 25 40 43 44 49 35 38 330 2.00 165

- CBM Enrolments 7 19 26 1.00 26

- CECD Enrolments 184 199 383 1.00 383

- CWCY Enrolments 86 68 154 1.00 154

- HDABET Enrolments 61 15 19 95 1.00 95

- DED Enrolments 65 65 130 1.00 130

1.d TVET PROGRAMME: Total Students 81 - Office Administration Enrolments 81 81 1.00 81

1.e ICTs PROGRAMME: Total Students 131 106 152 208 247 287 409 350 1.1% - ICDL Enrolments (incl. Advanced) 131 106 152 208 247 229 351 350 1,774 1.00 1,774

- Enrolments for Other CBLC courses 58 58 116 1.00 116

114

Senior Secondary: TOTAL 61,245

- NAMCOL 20,242 33.1%

- Conventional Schools 41,003

Junior Secondary: TOTAL 143,944

- NAMCOL 10,687 7.4%

- Conventional Schools 133,257

Sources: MoE, EMIS (2011) Education Statistics,

2010

TABLE E.2 - NAMCOL's SEP as proportion of all Learners

studying at Secondary Level, 2010

NAMCOL (2011) Statistical Digest, 2010

115

TABLE E.3 - Calculating Demand for Places on NAMCOL's SEPEnrolments in 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 Means

GRAND TOTAL - Secondary Education* 108,749 109,686 115,771 123,797 130,577 137,099 141,752 144,289 148,104 152,637 158,162 163,879 169,390 174,260

Junior Secondary 83,093 85,206 92,963 100,267 105,643 110,998 114,441 115,994 119,605 121,077 124,448 130,478 131,451 133,257

Senior Secondary 25,656 24,480 22,808 23,530 24,934 26,101 27,311 28,295 28,499 31,560 33,714 33,401 37,939 41,003

Increase in Number of Senior Secondary Places each year -1,176 -1,672 722 1,404 1,167 1,210 984 204 3,061 2,154 -313 4,538 3,064 1,181

Determining Size of Cohort

Formal Schools - Grade 10 Learners Only* 24,646 22,689 22,457 22,538 25,294 27,908 29,168 28,907 30,172 31,385 32,291 36,660 36,220 33,959

NAMCOL - JSC Learners Only† 6,703 9,504 10,664 12,236 12,409 17,386 14,012 13,272 13,317 13,577 13,192 11,689 10,412 10,687

Total Cohort studying in Grade 10 31,349 32,193 33,121 34,774 37,703 45,294 43,180 42,179 43,489 44,962 45,483 48,349 46,632 44,646

Increase in Number of Grade 10 Students each year 844 928 1,653 2,929 7,591 -2,114 -1,001 1,310 1,473 521 2,866 -1,717 -1,986 1,023

NAMCOL JSC Learners as a Percentage of Total Grade 10 Cohort 21.4% 29.5% 32.2% 35.2% 32.9% 38.4% 32.5% 31.5% 30.6% 30.2% 29.0% 24.2% 22.3% 23.9%

Formal Schools - Grade 11 Learners Only* 13,610 11,600 11,880 12,170 13,274 13,355 14,673 14,301 14,777 17,226 16,977 17,376 20,690 21,054

Percentage of Cohort Continuing in Formal Education 37.0% 36.9% 36.7% 38.2% 35.4% 32.4% 33.1% 35.0% 39.6% 37.8% 38.2% 42.8% 45.1% 37.6%

Formal Schools - Grade 12 Learners Only* 12,746 12,638 13,994 13,722 14,334 16,737 16,025 17,249 19,949

NAMCOL Grade 12 Learners 10,439 10,567 10,966 12,633 14,920 12,448 11,807 13,384 14,513 14,666 16,319 17,842 20,242

Increase in Number of NAMCOL Grade 12 Learners each year 128 399 1,667 2,287 -2,472 -641 1,577 1,129 153 1,653 1,523 2,400 817

Total Cohort studying at Grade 12 Level 10,439 10,567 10,966 12,633 27,666 25,086 25,801 27,106 28,847 31,403 32,344 35,091 40,191

NAMCOL Grade 12 Learners as a Percentage of Total Grade 12 Cohort 53.9% 49.6% 45.8% 49.4% 50.3% 46.7% 50.5% 50.8% 50.4% 49.7%

Sources: *

†

GRN, MoE, EMIS. Education Statistics, 1997-2003, 2005, 2008, 2010. Table 11(a) up through 1998; Tables 7, 11, 19 & 20 after 1998.

NAMCOL. Statistical Digest, 1998-2005 . Figures for 2006 are from unpublished printouts of NAMCOL student records database, entitled Enrolment Statistics, 2006 .