Issues and directions from a review of the Australian apprenticeship and traineeship literature

As a contribution to a National Centre for Vocational Education and Training (NCVER) review of developments and directions in training since the introduction of traineeships in 1985, this paper considers issues and directions arising from a review of recent literature in the Australian apprenticeship and traineeship system.

Over 125 post-traineeship references have been scanned for their key topics and issues. Relatively few appear to target specific issues of entry-level training (ELT) or link vocational education and training (VET) issues to the issues of other sectors of education and training, or broader industry and labour force trends.

Broadly speaking, the paper falls into two parts. The first classifies and considers the issues raised in the references. The second offers a series of ideas and directions for the future of VET and particularly ELT.

Issues

Consideration of supply and demand issues points to the remarkable growth in school - work combinations and traineeships, and highlights recent concerns over levels of apprenticeship provision. The paper is sceptical of a general crisis in ELT provisions, while acknowledging specific supply problems and the higher trades and the need to respond to the challenges of maintaining the relevance of apprenticeships.

Reviewing developments in the training policy and system, the paper describes the burgeoning of public VET funding and the alternating periods of development since the late 1980s in training programs and their training and regulatory systems. The paper notes the shift towards the demand side of the training system and acknowledges (some) degree of streamlining of accreditation and recognition arrangements.

The development of the public training market is canvassed, including the continuing interest in more diverse funding and market models (apart from 'user choice') and the pleas for better market information.

Theories of private training investment are introduced as a prelude to discussion of the respective roles of government and enterprises in training. The costs and benefits of trade and traineeship training are reviewed alongside the potential impact of training incentives.

The paper acknowledges the evidence that employers train apprentices for social and community motives rather than for direct profit, but characterises this as a positive feature of the system. A query is raised whether instruments such as wage cuts, training levies and training incentives are sharp tools to solve contemporary training problems quickly.

Measuring training market outputs across the whole market for middle-level vocational training, rather than just in new apprenticeships training, is seen as an important issue. The interdependence between demand for new apprenticeships, and that for adjacent forms of vocational certificate-diploma preparation, is noted.

A review of training intermediaries, pathways and innovations follows. This leads to a proposition that training pathways similar to those proposed in the Carmichael report of 1992 should now be developed more intensively and through a broader range of agencies. A need is seen for the training system to respond diversely to the pressure on apprenticeships, the casualisation of jobs and the learning needs in small business.

Finally, the paper reviews training quality and performance issues, particularly the quality debates in traineeships and the post-Australian National Training Authority (ANTA) moves towards better training data and greater performance orientation. Possible gaps between the policy directions and the information available are discussed.

Directions

Recognising the record of achievement and adjustment since the introduction of traineeships, this part of the paper proposes ideas and directions for the future of the ELT system in the broader VET context. Each of the propositions is illustrated by examples of possible supporting measures.

Sharpening training investigation and diagnosis

The proposition is that government and business sharpen investigation and research to identify and diagnose the critical facts and issues of entry-level training 'just in time' for better policy-making.

The inconclusive investigations of the traineeship surge since 1995-96 are noted. Other issues are cited where timely investigation and diagnosis could be valuable. The drift of these examples is to urge increased research on levels of training provision, quality of training providers and training cost issues.

Repositioning the trades in the training marketplace

The proposition is that training regulators, providers and intermediaries take concerted action to reposition the trades centrally in the marketplace of training opportunities for talented young people.

It is suggested that the relevance and success of Australian apprenticeships can no longer be taken for granted. Intermediaries and providers must unite for the common goals of arresting decline and substitution in the trades. Various measures are put forward and relate to the flexibility of training and its rewards, as well as the presentation and positioning of apprenticeship training in schools and communities.

Renewing the traineeship consensus

The proposition is that government, the training system and business work together to rebuild the common aims and objectives for traineeships.

The slant of this paper is that the unprecedented jump in numbers is at least as problematic as the topical quality concerns. Hence, there is a leaning towards replanning of traineeships levels and types (and incentives in relation to trades and other vocational certificate programs), rather than towards particular efforts to adjust the mix of on-the-job traineeships or youth traineeships.

Broadening the education and training horizons for new pathways to vocational skills

The proposition is that the entry-level training planning horizons should expand to include new agencies and pathways which broaden the routes to vocational skills.

It is suggested that, if entry-level (new apprenticeships) training is to retain an appropriate share of education and training, planning could be more responsive to major shifts towards 'non-standard' schooling and employment in recent years. Several measures are suggested to encourage a more ecumenical range of providers for and pathways through entry-level training. This may include educational institutions and private companies, and particularly training providers and pathways that make allowances for 'non-standard' employment.

Testing new approaches to training markets

The proposition is that there is a continuing need to consider and test more diverse approaches to training markets and funding.

The VET training market policy is now a reality, and is characterised by 'user choice' and other competitive measures. There are reasonable views that more could be done to improve the operation of the current market and that variations to the 'user buys' forms of market provision originally proposed in the 1994 Allen report merit continuing consideration. Measures are proposed to improve the flow of information in the current market and to test alternatives for market provision within and beyond user choice.

Widening the avenues for structured training in enterprises

The proposition is that there are opportunities to increase industry participation in structured training and make it a better match to enterprise training needs.

The paper considers the varying possibilities for governments to encourage 'general' or 'specific' training for enterprises and the extent of enterprise responsiveness and openness to the current training frameworks and incentives. It proposes rationales and measures for increased industry participation in structured training, whether as registered training organisations (RTOs) or by making more use of the forms of structured training which appear to be preferred by business.

Adding pathways and learning models to the work of training intermediaries

The proposition is that further growth and maturity in the VET system will be encouraged by fostering diversity among the training intermediaries and by introducing new learning-oriented intermediaries.

There is evidence that group training and other intermediaries successfully influence training quality and numbers, and that Australia has the elements of a training culture. However, a need is seen for measures whereby existing intermediaries foster newer and innovative pathways to vocational skills and (perhaps new intermediaries) promote business skill and learning in an enterprise-friendly manner.

Reviewing and reinforcing priorities for training measurement and quality

The proposition is that emerging directions in VET performance and quality should be encouraged and refined to ensure better allocation of funds and better service to clients.

The approach is not to resile from training devolution, although the accreditation and quality mechanisms could be strengthened. Recognising the increasing Commonwealth - State and ANTA interests in useful performance measurements, improvements are urged in the availability, inclusivity and user-friendliness of information on vocational outcomes, good quality providers, and industry skill outcomes (compared to inputs).