Report of the Commission of Enquiry into Higher Education and Training to the President of the Republic of South Africa

Oct 4, 2026

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Comprehensive commission report to the President of the Republic of South Africa examining the feasibility and policy implications of higher education and training fee-free access. It traces the start and demands of the #FeesMustFall protest, assesses consequences and determined fee increases, and sets out the Commission’s mandate. The report details the purpose, policy evolution, funding structures, and definitions of higher education and training, then analyzes constitutional and legal considerations, international obligations, implementation steps, testimony, and education costs, including NSFAS rules, means tests, and funding shortcomings.

LanguageEnglish

CategoryResearch & Report

FormatPDF

Pages752

Reading Time31 h 35 min

AccessFree to download

Introduction

The start of the #Feesmustfall protest: the demands and the outcome

The students’demands

The consequences of the protest and determined increases

The Mandate of the Commission

Higher Education and Training: Purpose, Policy and Historical Development and Funding

The purpose of higher education

Higher education policy

The National Development Plan (NDP)

The White Paper for Post-School Education and Training (PSET)(2013)

Early policy decisions on university funding

Public or private benefit

Defining higher education and training for the purposes of the Commission

Post-school education and training (PSET)

The PSET system

The PSET sector

The college sector

TVET funding needs

The university sector

University funding

Private higher education and training

Conclusion

‘Fee-free’ in the Context of Higher Education and Training

‘Feasible’

Legal Considerations, including the Constitution

The constitutional obligation in relation to higher education and training

International Obligations

Steps taken to Realise the Right to Accessible / Free Higher Education

Testimony on free education

An overview of the testimony on free education

The Cost of Education: The Research Report

National Student Financial Aid Scheme (NSFAS)

REPORT OF THE COMMISSION OF ENQUIRY INTO HIGHER EDUCATION AND TRAINING TO THE PRESIDENT OF THE REPUBLIC OF SOUTH AFRICA 1 Introduction ....................................................................................................... 9 1.1 The start of the \#Feesmustfall protest: the demands and the outcome............................................................................................................ 9 1.2 The students’demands .................................................................... 16 1.3 The consequences of the protest and determined increases ........... 20 2 The Mandate of the Commission .................................................................. 26 3 Higher Education and Training: Purpose, Policy and Historical Development and Funding............................................................................. 32 3.1 The purpose of higher education ...................................................... 32 3.2 Higher education policy .................................................................... 34 3.3 The National Development Plan (NDP) ............................................ 36 3.4 The White Paper for Post-School Education and Training (PSET)(2013) ............................................................................................... 38 3.5 Early policy decisions on university funding ..................................... 39 3.6 Public or private benefit .................................................................... 42 3.7 Defining higher education and training for the purposes of the Commission ...................................................................................... 57 3.8 Post-school education and training (PSET): developing and maintaining the sector ...................................................................... 64 3.9 The PSET system ............................................................................. 66 3.10 The PSET sector .............................................................................. 67 3.11 The college sector ............................................................................ 67 3.12 TVET funding needs ......................................................................... 71 3.13 The university sector ........................................................................ 78 3.14 University funding ............................................................................. 79 3.15 Private higher education and training ............................................. 100 3.16 Conclusion ...................................................................................... 104 4 ‘Fee-free’ in the Context of Higher Education and Training ..................... 105 5 ‘Feasible’ ....................................................................................................... 107 6 Legal Considerations, including the Constitution..................................... 107 6.1 The constitutional obligation in relation to higher education and training ............................................................................................ 107 6.2 The Constitution of the Republic of South Africa, Act 108 of 1996 . 110 6.3 Expression of the Constitution in government and ANC policy ...... 116 6.4 ANC policy decisions, 2007 to 2012 ............................................... 119 6.5 Fee-free Working Group ................................................................. 122 7 International Obligations ............................................................................. 125 8 Steps taken to Realise the Right to Accessible / Free Higher Education 134 9 Testimony on free education ....................................................................... 137 9.1 An overview of the testimony on free education ............................. 138 9.2 Government and statutory bodies’ testimonies ..............................

FAQs

What prompted the inquiry into higher education and training in South Africa?

The report begins by describing the start and demands of the #Feesmustfall protest and the outcomes that followed, including the consequences and subsequent determined fee increases.

What legal framework and obligations does the report consider for fee-free higher education?

The report includes legal considerations, focusing on constitutional obligations related to higher education and training, the relevant constitutional act, and how constitutional expression informs government and party policy, along with international obligations.

How does the report address funding and implementation, including student financial aid?

It outlines purpose, policy development, sector funding structures, and the steps taken to realise accessible/free higher education. It also details the NSFAS legislative and regulatory framework, rules, means testing, implications of caps, and key shortcomings.

Oct 4, 2026

Upload by Elsa