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Daily Maverick
4 days ago
- Politics
- Daily Maverick
Treasury's decision not to allocate extra funding imperils compulsory Grade R roll-out
While the Bela Act makes Grade R attendance compulsory, the National Treasury's refusal to allocate additional funding leaves provinces struggling to deliver on the promise of universal early childhood education. The National Treasury has turned down the Department of Basic Education's request for additional funds to implement compulsory Grade R schooling. Basic Education Minister Siviwe Gwarube confirmed the Treasury's stance during her 2025/26 budget vote speech in Parliament, acknowledging that although the Department of Basic Education's budget rose by more than 8% to over R35-billion, it fell short of meeting the cost required for universal access to Grade R schooling. Gwarube did not mince words about the consequences: provinces must absorb the significant costs from within already stretched budgets. The enactment of the Basic Education Laws Amendment (Bela) Act in December 2024 marked a watershed moment, officially making Grade R attendance compulsory for all children in SA. The law was 'the culmination of over three decades of careful policy development, expert recommendations and legislative process', said Equal Education Law Centre legal researchers Daniel Peter Al-Naddaf and Katherine Sutherland. 'This year marks 24 years since Minister Kader Asmal launched Education White Paper 5 on Early Childhood Development, which recorded Grade R as the first year of formal education. This recommendation originated from the South African Preschool Study Team in August 1994 — almost 31 years ago,' they said. 'It took six years to reach a White Paper and another 23 years to become law through the Bela Act in September 2024. Compulsory Grade R was not a rushed policy decision. 'Yet, after 30 years of planning, implementation is failing due to lack of funding. The irony is that the very government that spent three decades developing this right now renders it meaningless through budgetary neglect.' Al-Naddaf and Sutherland noted that basic education is a constitutionally protected right that must be fulfilled immediately. By including Grade R in this definition, the law established not only a duty for parents to send their children to school, but also an immediate right for children to receive this education, regardless of when it might be convenient for the government. Taking from Peter to pay Paul During her address, Gwarube said the Department of Basic Education was unable to secure additional funding from the National Treasury for the undertaking, meaning that provinces must fund it from their allocated budgets. 'Our goal is clear: every child must enter Grade R ready to learn in all respects. We urgently need additional funding for compulsory Grade R, as required by the Bela Act,' she said. Al-Naddaf and Sutherland observed that, although there was a real increase this year in the consolidated Basic Education budget when measured by the Consumer Price Index (CPI), per learner spending declined when calculated using a sector-specific inflation rate, the Basic Education Price Index (Bepi). The Bepi provides a more accurate reflection of true spending power in the sector, as it captures factors like rising teacher salaries — the main cost driver — better than CPI adjustments alone. 'When factoring in this education-specific inflation measure, alongside projected learner enrolment growth and the formalisation of compulsory Grade R, it becomes evident that per-learner spending in real terms will decline to its lowest level since at least the 2013/14 financial year,' said Al-Naddaf and Sutherland. When asked how ready provinces were to fund and implement compulsory Grade R from their current budgets, Al-Naddaf and Sutherland said that, for many years, provinces had been expected to do more with fewer resources. This ongoing strain has left provinces, particularly those already facing funding challenges, in a vulnerable position as they try to fulfil the new mandate. The department has estimated that implementing universal Grade R will cost R17-billion. 'After a decade of chronic underfunding and budget cuts, it is unreasonable for the Treasury to expect provinces to somehow absorb a R17-billion obligation within budgets already cut to the bone, especially when provinces derive around 97% of their income from the national government,' said Al-Naddaf and Sutherland. 'It is estimated that the education system will need to incorporate an additional 200,000 Grade R learners to realise universal Grade R, and costs that provinces must bear to achieve this include additional Grade R classrooms; the upskilling of underqualified Grade R practitioners; furniture; playground equipment; learner packs; per learner funding for school budgets; and Grade R educator salaries.' They noted that several provincial education departments were at risk of becoming insolvent this financial year, attributing this to years of chronic underfunding and mounting obligations imposed without matching resources. Under-resourced schools The Gauteng Department of Education is wrestling with a R31.1-billion infrastructure backlog, forcing learners into crumbling buildings or overcrowded classrooms. This gargantuan backlog does not include the 2,000 new classrooms required for the compulsory roll-out of Grade R. In the Northern Cape, education officials say it will take at least five years to address the current shortfall of 252 classrooms. Meanwhile, Limpopo appears, on paper, to have nearly universal Grade R access, with only nine schools lacking Grade R. 'However, if one looks at the number of enrolled Grade R learners in the province (128,721) and the total number of Grade R educators and practitioners (2,151), this would amount to an average teacher-to-educator ratio of 60 learners to one teacher,' said Al-Naddaf and Sutherland. 'Having Grade R available on paper is fundamentally different from meaningful implementation — true access requires quality education with adequate resources, and it is clear that quality education cannot be achieved under these severely under-resourced conditions.' Al-Naddaf and Sutherland noted that many provinces had reported having to make trade-offs and redirecting funds from other vital programmes to fund universal Grade R. The effects ripple across the education system: Scholar transport budgets are slashed, making it harder for children in rural or remote areas to get to school. The National School Nutrition Programme, meant to guarantee a basic meal to every child, now stretches thin resources to feed growing numbers of Grade R learners, risking a decline in the quality or quantity of food available. Legislation versus purse strings Gwarube acknowledged these difficult choices, reflecting in Parliament: 'We operate under extremely difficult fiscal conditions which require innovation, creativity and firm financial discipline in all our provinces. 'This is a clarion call to all our stakeholders in the sector and PEDs [provincial education departments] to tighten belts, accelerate delivery and guard against falling foul of their constitutional responsibilities of delivering quality education to all.' Despite the funding setback, Gwarube outlined the department's plans to maximise its allocated resources. Early childhood development (ECD) is a particular focus, with the ECD conditional grant rising to R1.7-billion. Of this, R230-million is earmarked for a nutrition pilot programme targeted at the youngest learners, while R162-million will be invested in infrastructure for ECD programmes. Gwarube also highlighted several targeted allocations designed to address specific educational challenges. More than R4.6-billion has been allocated to curriculum policy support and monitoring, and R1.2-billion will go towards the school workbook programme, ensuring that learners from Grade R to Grade 9 receive the necessary learning materials. The minister announced that R57-million had been earmarked to advance mother-tongue-based bilingual education. However, these pockets of targeted funding can't offset the overall resources required to give every child quality access to Grade R schooling, as the implementation of the Bela Act rests uneasily on fragile fiscal ground. Al-Naddaf and Sutherland raised a constitutional warning: 'Treasury's refusal suggests that it believes it has the power to block the implementation of legislation by declining to fund it, even when this contravenes the rights of children.' This, they argue, undermines the law and the 'immediately realisable' right to basic education enshrined in the Constitution. 'We are most concerned about the hundreds of thousands of children who will be affected. It is vital that we consider what it means for democracy and the rule of law when the Treasury is effectively able to veto a law by refusing to fund it. It may be education today, but what guarantee does anyone have that their rights will have the funding to mean something?' Daily Maverick sent questions to the National Treasury, the Department of Basic Education and Gwarube's spokesperson. No responses had been received by the time of publication. DM
The Herald
09-07-2025
- Politics
- The Herald
Parliament warns against stalling Bela Act implementation
Gwarube told the committee she had issued draft guidelines to help provincial departments implement the act, but these were not binding. She said 10 task teams were working on finalising the regulations, two of which were nearly complete and under legal review. The minister denied being influenced from outside to issue the guidelines. However, the committee voiced concern about claims that the draft guidelines clash with the South African Schools Act (Sasa) and interfere with provincial administrative powers. Issues raised include confusion over the phrases 'collaborative vs after consultation', powers of the heads of departments and the appeals process. 'We have not been furnished with any guidelines or regulations. During our engagements with the provincial departments of education, it became apparent the guidelines differ from the Sasa. Some provincial departments of education are also confused by whether they received guidelines or regulations,' said Maimela. 'This is confusion we were concerned about from the start. If the provincial departments of education are confused, what about the general public and other stakeholders. We cannot allow the confusion.' Some provincial departments told the committee the council of education ministers (CEM) rejected the guidelines and referred the matter back to the heads of education departments committee, calling for focus on regulation drafting. The committee has asked Gwarube to submit a full report within four working days detailing how the guidelines came about. 'The committee is of the view that the time spent for draft guidelines could have been used rather for drafting regulations. We need the detail of what led to the guidelines as we must discuss if we need to write to the office of the president and explain the confusion created in the sector,' said Maimela. The committee also noted challenges raised by provinces, including infrastructure issues, funding for compulsory Grade R, stipends and training for grade R, and stipends and training for Grade R practitioners. It refused to engage with the Western Cape education department's presentation, citing a lack of substance. Maimela said: ' The department has been told to amend its presentation and address the shortcomings. The Western Cape education department had a seven-slide presentation, but only three of the slides had the required information. We took a dim view as we noted the department seems to disregard our oversight role. We informed it to prepare a more detailed presentation that speaks to the request we sent to them.' TimesLIVE
IOL News
09-07-2025
- Politics
- IOL News
Minister Siviwe Gwarube says BELA Act is being implemented despite ongoing work on regulations
Basic Education Minister Siviwe Gwarube says the BELA Act is being implemented, but Parliament urges urgency on final regulations—especially for admissions and language policy—to ensure clarity, consistency, and full compliance across all provinces. Basic Education Minister Siviwe Gwarube says the Basic Education Laws Amendment (BELA) Act is already being actively implemented, even as work continues on the finalisation of supporting regulations. Addressing Parliament's portfolio committee on Tuesday during the 2025/26 Budget Vote, Gwarube said her department had rolled out extensive support to provinces and districts to ensure the Act's smooth implementation since it came into effect on December 24, 2024. 'This support has included training of provincial and district officials, the development of interim guidelines and the development of an extensive suite of draft regulations to further support implementation,' she said. Gwarube confirmed that the first two regulations , focused on admissions and school capacity , will be published for public comment in the coming weeks. She stressed the Department of Basic Education's (DBE) commitment to a "legal and policy framework that is responsive and fit for purpose." However, the Portfolio Committee on Basic Education expressed concern over delays in the drafting of the full set of regulations. Committee Chairperson Joy Maimela said: 'The majority of Members of the committee are of the view that deliberate attempts are being made to hold the full implementation of the BELA Act by delaying the drafting of regulations, especially those that speak to the two contentious sections. These regulations should provide the necessary clarity to implementers of the Act.' The committee was particularly concerned about Sections 4 and 5 of the Act, which relate to school admission and language policy—issues that remain contentious. Although additional time had been given for stakeholders to reach consensus, no agreement was reached, and the Act was enacted with the understanding that detailed regulations would follow. Maimela reminded Gwarube that the deadline for finalising the regulations was the end of June 2025.
IOL News
09-07-2025
- Politics
- IOL News
Gwarube announces upcoming publication of Bela regulations for public comment
Basic Education Minister Siviwe Gwarube says the first two regulations of the Basic Education Laws Amendment Act will be published in the coming weeks for public comment. Image: GCIS Basic Education Minister Siviwe Gwarube said the first two regulations for the Basic Education Laws Amendment (Bela) Act will be published in the coming weeks. Presenting the department budget for 2025/26 in the National Council of Provinces (NCOP) on Tuesday afternoon, Gwarube said her department has actively supported the education sector to implement the Bela Act, which came into effect on December 24. She said there has also been development of interim guidelines and draft regulations for further support and implementation. 'The first two regulations, which focused on admissions and capacity, will be published in the coming weeks for public comment. Further regulations will follow,' she said. 'This reflects our commitment to a legal and policy framework, which is responsive and fit for purpose. These broader efforts signal a broader shift to a more responsible, accountable leadership and a system that is grounded in purpose and growth.' Video Player is loading. Play Video Play Unmute Current Time 0:00 / Duration -:- Loaded : 0% Stream Type LIVE Seek to live, currently behind live LIVE Remaining Time - 0:00 This is a modal window. Beginning of dialog window. Escape will cancel and close the window. Text Color White Black Red Green Blue Yellow Magenta Cyan Transparency Opaque Semi-Transparent Background Color Black White Red Green Blue Yellow Magenta Cyan Transparency Opaque Semi-Transparent Transparent Window Color Black White Red Green Blue Yellow Magenta Cyan Transparency Transparent Semi-Transparent Opaque Font Size 50% 75% 100% 125% 150% 175% 200% 300% 400% Text Edge Style None Raised Depressed Uniform Dropshadow Font Family Proportional Sans-Serif Monospace Sans-Serif Proportional Serif Monospace Serif Casual Script Small Caps Reset restore all settings to the default values Done Close Modal Dialog End of dialog window. Advertisement Next Stay Close ✕ Ad loading The minister presented the budget after she and the provincial departments briefed the Basic Education Portfolio on the Bela Act regulations and implementation as they related to Grade R admissions. Gwarube, who previously promised the regulations would be published by the end of June, reportedly told the portfolio committee that 10 task teams were established to handle each regulation, and two regulations, now with the State Law Advisor, were nearly finalised. Committee chairperson Joy Maimela said in a statement that they had not been furnished with any guidelines or regulations. 'During our engagements with the provincial departments of education, it became apparent that the guidelines differ from the South African Schools Act. Some provincial departments are also confused about whether they received guidelines or regulations. This is the confusion we were concerned about from the start. If the provincial departments of education are confused, what about the general public and other stakeholders,' Maimale said. She said the committee has requested Gwarube to provide a comprehensive report within four working days on the process that led to the drafting of the guidelines. 'The committee is of the view that the time spent for draft guidelines could have been utilised rather for drafting regulations. We need the detail of what led to the guidelines as we must discuss if we need to write to the Office of the President and explain the confusion created in the sector,' said Maimela. Presenting the budget at the NCOP, Gwarube said the department's budget was R35 billion. She said the early childhood development grant has increased from R1.7 billion, with over R230 million allocated to early childhood development nutrition. A total of R162m has been set aside for early childhood development infrastructure. 'Our goal is that every child must enter Grade 1 ready to learn cognitively, be ready emotionally and physically ready.' Gwarube said improving foundational learning was at the heart of their strategy to ensure more learners progressed through the system, exited with quality results, and were better placed to study further, start sustainable businesses, or enter the job market. 'Our strategy places strong emphasis on string quality of early childhood and strengthening foundational literacy and numeracy.' She said they have set themselves to register 10,000 early childhood development centres in the current financial year. Gwarube also said they have developed learning and teaching support material to assist early childhood practitioners in effectively implementing their strategy. 'We are also developing human resources development strategy just for early childhood development to guide professionalism of the sector. ' She added that the Funza Lushaka Bursary Scheme has been aligned to prioritise the foundation phase teaching.
IOL News
30-06-2025
- Politics
- IOL News
Gwarube reveals plans to tackle Eastern Cape infrastructure crisis
Basic Education Minister Siviwe Gwarube says her department was taking measures to address weaknesses identified that caused infrastructure crisis in the Eastern Cape. Image: Supplied BASIC Education Minister Siviwe Gwarube says the mismanagement was not the only factor responsible for the overall infrastructure crisis in Eastern Cape schools. She cited persistent backlogs inherited from the pre-1994 era, ongoing budget constraints and competing service delivery priorities, contractor underperformance and project implementation delays, adverse weather conditions affecting construction timelines, and disruptions by local business forums and community protests at school sites. She disclosed this when responding to MK Party MP Nompumelelo Gasa, who noted with concern that the Cape's schools remained the worst in the country regarding billions of rand allocated to schools. Gasa asked Gwarube whether, in an effort to uncover whether corruption or incompetence was to blame, her department will commission an independent forensic audit of all infrastructure grants and Equitable Share spending there. Gwarube dismissed calls for an independent forensic audit, saying her department was taking measures to address weaknesses that caused an infrastructure crisis in the province. 'There are currently no plans by the Department of Basic Education (DBE) to commission an independent forensic audit of the Education Infrastructure Grant (EIG) or Equitable Share spending in the Eastern Cape for the period since 1 January 2019. 'However, the DBE maintains infrastructure planning and performance information through the Infrastructure Reporting Model and the Education Facilities Management System (EFMS),' she said. Gwarube said the systems contained annual allocations and expenditure performance per infrastructure funding stream, a record of contractors awarded infrastructure projects, and estimated and actual completion rates, including, where applicable, reasons for delays and underperformance. 'This information is available to relevant oversight bodies upon request and is used routinely by the DBE to monitor progress and flag systemic issues.' She said her department was rolling out a sector-wide 10-point infrastructure strategy designed to accelerate infrastructure delivery and strengthen accountability. "As part of efforts to improve service delivery and financial management at a provincial level, the Minister of Basic Education recently requested all MECs and heads of provincial Education Departments to submit urgent written feedback on service delivery failures and personnel irregularities across provinces.' She also said she has launched a coordinated response to restore financial discipline and protect core education services. The national department wants all provinces to submit credible financial recovery plans ahead of the Council of Education Ministers meeting scheduled for July 21.
