The Growing Burden of Student Debt in South Africa's Higher Education Sector
South Africa's 26 public universities are grappling with a significant financial challenge as student debt has climbed to R24 billion by the end of 2024. This figure, presented to parliament's portfolio committee on higher education, underscores mounting pressures on institutional finances amid broader economic difficulties in the country.
Of the total R24 billion owed, approximately R15.3 billion, or 64 percent, has been classified as impaired debt, meaning recovery is considered unlikely. This represents a sharp increase from 2022, when universities were owed R18.8 billion, of which R11.3 billion, or 60 percent, was deemed bad debt. The Department of Higher Education and Training (DHET) highlighted these audited figures during recent briefings, noting that the trend persists despite substantial increases in government funding for student aid.
Key Drivers Behind the Escalating Debt
Several interconnected factors contribute to the rising student debt levels. High unemployment rates among graduates and their families limit repayment capacity. Accumulated arrears spanning multiple academic years compound the problem, as students struggle to clear balances while facing ongoing costs.
Accommodation expenses play a particularly prominent role. Shortages of affordable on-campus housing, coupled with rising private accommodation costs and delays in National Student Financial Aid Scheme (NSFAS) payments for lodging, place additional strain on students and, by extension, the universities they attend. NSFAS has capped accommodation allowances in some cases, leaving gaps that students must bridge through other means or by falling into arrears with institutions.
The so-called "missing middle" students — those whose family incomes exceed NSFAS thresholds but who still cannot afford full fees — represent another major contributor. These learners often register with partial funding or none at all, leading to unpaid balances that grow over time.
Perspectives from Government and University Leaders
Thandi Lewin, DHET deputy director-general for universities, told parliament that student debt directly impacts the reliability of a key income stream for institutions. "Student debt is not only a student-support issue; it directly affects the reliability of a major income stream and the cash that institutions can realistically collect," she stated. Lewin noted that while daily operations are not immediately threatened due to university reserves, these buffers are being eroded. Universities reported a net income of R125.4 billion and a net operating surplus of R16.4 billion in 2024, yet the debt growth remains a concern.
Phethiwe Matutu, chief executive of Universities South Africa (USAf), presented more recent unaudited figures showing debt at R59 billion, with nearly R12 billion impaired. Institutions such as the University of Johannesburg, Cape Peninsula University of Technology, and Durban University of Technology each carry more than R4 billion in student debt. Matutu emphasised that high unemployment and NSFAS accommodation caps are key drivers. She described certificate withholding as a measure of last resort, with more than 188,000 students currently unable to receive their qualifications due to outstanding balances.
Photo by Nasjere Williams on Unsplash
Impacts on Institutions and Students
The debt crisis affects universities across categories, though universities of technology show the highest debt ratios. Traditional and comprehensive universities also carry substantial balances, making this a sector-wide issue. Financial strain can limit resources for academic programmes, staff retention, and infrastructure maintenance.
For students, the consequences are equally serious. Withheld certificates hinder employment prospects in a country already facing high youth unemployment. This creates a cycle where graduates cannot secure jobs to repay debts, perpetuating the backlog. Some institutions have tightened registration requirements or introduced measures to manage cash flow, which has occasionally sparked student protests.
Technical and Vocational Education and Training (TVET) colleges face similar challenges. A survey by the South African Public Colleges Organisation (Sapco) revealed extremely high bad debt ratios at some colleges, such as Capricorn TVET College with R242 million in bad debt representing 95 percent of its total. Over 20,000 certificates are being withheld across responding TVETs, with some debts dating back to 2007. Weak collection systems and outdated student records exacerbate recovery difficulties.
The Role of NSFAS and Government Funding
NSFAS remains central to student funding, with government contributions having grown dramatically from R10 billion a decade ago to more than R50.5 billion in the 2026/27 financial year. This accounts for 37.2 percent of the total higher education budget over the next three years. Despite this investment, debt levels continue to rise, prompting questions about the sustainability and effectiveness of current models.
NSFAS has faced its own challenges, including multiple administrations and ongoing reconciliations with universities over payments. These issues can lead to delays that push students into debt with institutions. The DHET and NSFAS have engaged in coordinated processes with USAf and student bodies to better understand and address the debt landscape.
Legal and Policy Considerations
Universities maintain a contractual right to recover fees owed, and legal opinions have supported their position even while acknowledging student hardships. Withholding certificates is one tool used to encourage repayment, though it is applied as a last resort. The DHET has sought clarity on permissible measures to balance institutional sustainability with student access.
Broader policy discussions focus on developing more affordable and accessible funding models. Stakeholders, including the presidency, have acknowledged the need for reforms that address rising debt and interest accrual, particularly for students outside NSFAS eligibility.
Stakeholder Views and Broader Context
Student organisations and unions have highlighted the human cost, including protests over funding shortfalls and accommodation issues. The South African Union of Students (SAUS) has been active in parliamentary engagements, advocating for solutions that prevent students from being excluded due to debt.
Universities emphasise that they must balance financial viability with their mandate to provide access. Many have implemented support measures for indebted students, but the scale of the problem requires systemic responses. International comparisons show student debt challenges are not unique to South Africa, but local factors like inequality and unemployment intensify them.
Potential Solutions and Future Outlook
Addressing the backlog will likely require a combination of improved debt recovery mechanisms, enhanced NSFAS processes, expanded affordable housing, and possibly new funding instruments for the missing middle. Better data reconciliation between NSFAS and institutions could reduce disputes and delays.
Longer-term, sustainable models might include income-contingent repayment schemes or targeted subsidies. Universities are urged to strengthen collection systems while exploring partnerships for financial literacy and support programmes.
The outlook depends on collaborative efforts between DHET, NSFAS, USAf, TVET organisations, and student representatives. With continued government investment and targeted reforms, there is potential to stabilise the situation and support both institutional health and student success. However, without decisive action, the debt burden risks further constraining the sector's ability to expand access and maintain quality.
Readers interested in academic opportunities in South Africa can explore related resources on higher education careers and institutional developments.
