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《共同的责任：面向21世纪的澳大利亚学徒制》

2011-2

发文机构：澳大利亚政府行政级别：国外国别：澳大利亚查看原网站全文

EXECUTIVE SUMMARY 
 
Mission Australia welcomes the Expert Panel’s key recommendations relating to additional support for apprentices/trainees and employers.  We agree that expanded capability and capacity is required to support the current Australian Apprenticeships Support Services contractual arrangements. This will ensure greater skills development and contribute to national productivity. We believe that reforms must build on the foundations and successes of the Australian Apprenticeships system and must focus on better integration of services and reduce duplication. 
 
As an employment services provider with 1,100 employees, Mission Australia Employment Solutions assists in excess of 150,000 Australians each year on pathways to employment.  We hold numerous Government contracts across all States and Territories, have a thirty year history of delivering successful Government vocational programs and understand the social implications of reforming or changing those programs.  We support a reform agenda that improves outcomes but minimises impacts on small to medium size enterprises. These enterprises are a critical economic driver and employ significant numbers of job seekers from disadvantaged groups.   
 
In summary, we agree with the concepts and recommendations that support: 
 
1. An integrated service, combining job placement functions (such as those provided by a JSA provider) with an Australian Apprenticeship Centre.  We believe this will result in substantial benefits and streamline the number of stakeholders by providing: • a single entry point for apprenticeship / traineeship and career advice to all job seekers, students, existing workers and employers, • expanded mentoring and pastoral care options to improve the experiences of all participants and their employers.  We recognise the need for reform that enables more tailored assistance on a case-by-case basis, particularly during the high risk period in early to mid-commencement, • streamlining of administration, resulting in efficiencies and cost savings. 2. Establishing a National Custodian to oversee reform for the whole system, facilitating a national framework that will enhance the Australian Apprenticeships system. 3. VET sector reforms that improve the consistency of services, which will increase takeup, recognition and participation to achieve training outcomes.  4. Improvements to pre-apprenticeship and pre-vocational applications, wages and benefits linked to training, Recognition of Prior Learning and Competency Based Training opportunities.  We support the view that an apprentice’s progress and wages should be determined by competency based, practical work place assessment rather than time served. 5. Access to formal training for employers and supervisors of Australian Apprentices to equip them with the skills to train, as well as coach, mentor and assess skills of apprentices and trainees in their charge. 6. Specific strategies that will actively promote apprenticeships and traineeships to equity groups such as disadvantaged youth, as well as programs that better position apprenticeships and traineeships as a pathway option for mature age job seekers. 
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1.  What support does an apprentice/trainee or employer require: 
a) prior to starting an apprenticeship or traineeship (including pre-apprenticeship training or Vocational Education Training in schools)? 
 
Mission Australia recognises the Expert Panel’s findings that there is strong evidence across the Australian Apprenticeship, VET and Employment Services Programs that young people and disadvantaged individuals require clear alternative pathways and entry points to workforce and educational participation.   
 
In our experience, young people and disadvantaged individuals require higher levels of language, literacy, numeracy and work preparation skills 1. Employers require less complexity in accessing and linking with these pathways and individuals to ensure skills development is industry-led and targeted toward workforce productivity outcomes. 
 
Mission Australia agrees that a formal, nationally regulated VET-in-Schools initiative across all jurisdictions would provide a less complex, more flexible and responsive pathway option for young people and employers, particularly when it involves work experience opportunities2. Work experience access enables more ‘job testing’ by students across different industries, improving their ability to determine a ‘best fit’ for them as individuals. Improving the information about apprenticeships that is available to school students is necessary if more young people are going to be encouraged into apprenticeships.3 This would aid employers in their recruitment goals by helping them select the right person for their apprenticeship and traineeship opportunity.  
 
Additionally, better publicised pre-vocational and pre-apprenticeship profiles would assist in achieving improved linkages between school, the workplace, training providers, job placement providers and the wider community. They would act as an ‘enabler’ to support those individuals most at risk in post-school transition.  A nationalised system should enable outcomes to articulate upwards, giving recognition for trade apprenticeships and focus occupations of training, with wage progression and time credits, if apprentices undertake subsequent contracted training.  
 
Mission Australia believes that further development of an integrated service approach will be best to offer employment, Australian Apprenticeships and alternate training referral services to job seekers, and would best support those entering an apprenticeship or traineeship pathway.    
 
                                            1 Curtis, D (2008) ‘VET pathways taken by school leavers’ LSAY Research Report 52, ACER: Camberwell 2 Lamb, S. & Vickers, M (2006) ‘Variations in VET provision across Australian schools and their effects on student outcomes’. LSAY Research Report 48, ACER: Camberwell 3 Misko, J., Nguyen, N. & Saunders, J. (2007) Doing an apprenticeship: what young people think. NCVER: Adelaide 
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1.    What support does an apprentice/trainee or employer require: b) commencing an apprenticeship or traineeship? 
 
Mission Australia agrees that enhancing the quality and effectiveness of the Australian Apprenticeships system is critical if we are to attract people to apprenticeships and traineeships.  There should be a high quality recruitment and selection process available to potential employers in the first instance. Further, upon placement and at initial contact with the trainee or apprentice, there needs to be an exchange of details covering the expectations of both parties, an outline of the workplace environment, training supervision, as well as a consistent approach to the explanation of the rights and responsibilities. Finally, effective conflict resolution processes need to be explained and implemented. 
 
We agree with the Expert Panel and we recognise the value of the highest standard induction process possible for entry into an apprenticeship / traineeship. Mission Australia recommends that induction should be underpinned by adequate information via comprehensive assessment.  
 
Our experience in providing vocational services for highly disadvantaged job seekers4 shows that prior to starting an apprenticeship or traineeship, there needs to be a significant investment in the assessment of an individual’s needs, within their workplace, in order to establish the appropriate mentoring and support options.  This assessment should be comprehensive and not only determine aptitude, but also assess broader social and nonvocational barriers and requirements.  This would assist in averting any problems with transport, tools or workplace expectations. 
 
We acknowledge the differences between supporting a Job Seeker engaging with an employer for the first time, as opposed to an existing employee furthering their training for skills progression. Employers with experience in the process also need less repetitive involvement without removing the need for quality pre-placement advice and understanding for the Job Seeker or employee.   
 
Mission Australia believes that a ‘one-stop- shop’ service, combining the placement function (such as those provided by JSA providers) with an Australian Apprenticeship Centre is capable of delivering an integrated service. The integrated service would streamline the number of stakeholder involved and offer the following range of benefits: 
 
• a single entry point of service for apprenticeship and traineeship career advice to all job seekers, students, existing workers and employers. • improved cohesion for post-placement support covering the desired mentoring and pastoral support during the early to mid-stages of higher risk. • exposure of employers to alternative current Government services that may not exist now, potentially leading to increased opportunities for general job placements in addition to apprentices / trainees. 
 
We support the earliest possible enrolment of the apprentice or trainee by the RTO, to engage all parties in individualised training plans. This has critical importance in improving                                             4 E.g. Mission Australia (2008) Working for renewal: an evaluation of Mission Australia’s UREEP a social enterprise and transitional labour market program. http://www.missionaustralia.com.au/downloads/socialpolicy-reports/196-working-for-renewal 
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retention and completion outcomes. Regulating national standards in the VET sector to require an increased application of Recognition of Prior Learning (RPL) and Recognition of Current Competence (RCC) will be valued. It will improve outcomes by reducing the required training and shortening timeframes.  
 
Mission Australia also supports the concept raised by the Expert Panel for a national system of professional development being made available to employers and supervisors. This is vital in equipping them with the skills to train, coach, mentor and more effectively assess the skills of apprentices or trainees in their charge.  
 
 
1.   What support does an apprentice/trainee or employer require: c) Progressing through an apprenticeship or traineeship? 
 
As mentioned, an integrated service approach combining the placement role with an Australian Apprenticeship function offers clear benefits. It reduces the number of stakeholders involved by providing improved cohesion for recruitment and induction and vital post placement support. This includes meaningful mentoring and pastoral support during the first 3 months and then periodically out to 12 months, especially for trade apprentices and those in focus groups.  
 
The rates of stakeholder dissatisfaction could be reduced, and retention and outcome rates increased, by adopting a national system of professional development for employers / supervisors. It would help equip them with the skills to train as well as coach, mentor and assess apprentices / trainees and the knowledge required to ensure that they are provided with meaningful work that is appropriately supported.5  
 
As recommended by the Expert Panel, Mission Australia supports a higher application of the competency based progression principles and a review of apprenticeship / traineeship provisions, wages and conditions by Fair Work Australia. 
 
With a more mobile  workforce, reforms under a National Custodian could include: 
 
• a simpler exit and re-entry process to the Australian Apprenticeship system, particularly if transferring across State borders. • systems for integrated employment search and training opportunities to be continued during forced downtime. • supported business advice, consulting and connection capabilities for employers and apprentices / trainees.  • additional support and career case management to out-of-trade regional apprentices and trainees. 
 
Mission Australia believes that improved post-placement mentoring and pastoral care is needed, even if targeted to trades and focus groups. Further, these need to be considered in line with a review of the current fee-for-service regime. Combined with a JSA service, we envisage a reduction in duplication of service costs, reduced administration costs, as well as more targeted expenditure relevant to individual needs.   
 
We believe that all apprentices and trainees, based on their assessed need and guiding principles, should have access to a pool of funds to support their retention in their                                             5 Karmel, T. & Misko, J. (2009). Apprenticeships and traineeships in the downturn. NCVER: Adelaide 
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apprenticeship or traineeship. We acknowledge the merits of a notional pool of funds – similar to the JSA Employment Pathway Fund – being made available to providers to help meet the individual needs of apprentices and trainees.  
 
 
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2.  There are different arrangements for Australian Apprenticeships around the country. What has been your experience in engaging with these differing arrangements? 
 
Mission Australia has found that employers with a national profile want to engage in a simple and consistent national system. This group suffer higher management and administrative costs to effectively navigate the differences across State jurisdictions. They often miss their entitlements or often mismanage their arrangements for apprentices and trainees. This results in reduced value for money for those participating in the system to develop their workforce skills.  
 
A lack of consistency between States & Territories is evidenced in the following key areas, highlighting the challenges for national employers: 
 
• qualifications • nominal durations • commencement arrangements • employer registration requirements and supervision / ratio standards  • requirements for changes to individual employment and training arrangements • State funded initiatives and User Choice support • Recognition of ‘other State’ qualifications (& licensing) • State Payroll tax, Workers Compensation rebates • RTO registration and delivery requirements  
 
In our experience, apprentices and trainees are impacted when they re-locate interstate to resume their training.  They typically encounter non-recognition of previous training, different qualifications on offer, or nominal durations or time credits affected. All of these issues impact on their new training arrangements. 
 
High profile examples of jurisdictional differences include: 
 
• South Australia’s requirement for employers to pre-register for approval prior to engaging apprentices and trainees.  • Western Australia’s targeted assistance and on the job support program of workplace contacts and advice plus retaining the ‘first point of contact’ for all apprenticeship / traineeship matters. • Differences in the management and administrative processes in working with AACs by DEEWR State Contract managers in the different States. 
 
Each of these differences impact upon the AAC service delivery to employers, apprentices and trainees, especially where services have to be individually tailored to suit local arrangements. While we are strong advocates for the delivery of services that meet local labour market needs, Mission Australia supports reforms that improve administrative consistency and reduce the negative impact of process variations. 
 
Mission Australia welcomes the suggestions made by the Expert Panel for a National Custodian, offering holistic control of the Australian Apprenticeships system. This will help achieve a national framework and overcome difficulties with system mobility. 
 
 
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We also support the concept raised by the Expert Panel for an improved national system of professional development being made available for Australian Apprentice employers and supervisors, equipping them with the skills to train, coach mentor and assess in the workplace.  
 
We welcomed the announcement of 24 March 2012 by Senator Chris Evans, detailing legislative changes that aim to increase the quality and consistency of all providers in the VET sector, with the introduction of a national standard. This will bring further standardisation for registration and delivery arrangements, especially for RTOs that deliver across borders, helping to reduce some of the operational difficulties that result in dissatisfaction for employers, apprentices and trainees.  
 
 
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3.  How is the Australian Apprenticeships system confusing? How can it be improved? 
 
As the Australian Apprenticeship Program has evolved, Mission Australia believes the roles of various stakeholders have been blurred. This has created multiple drivers in the system such as compliance, employer engagement, and training. As a result, the Australian Apprenticeship System has a high number of stakeholders actively involved in servicing the end users, each focusing upon their own portion of involvement in their interaction with the end user.  
 
Mission Australia agrees with the Expert Panel’s recommendation that the roles of stakeholders be redefined and clarified, to reduce the complexity and current duplication of service delivery.  An integrated service approach that combines the recruitment and placement role (such as those provided by JSA providers) with an Australian Apprenticeship function has already been mentioned in this submission, but will deliver a more efficient service through  program integration.. 
 
Further feedback from our clients indicate the following: 
 
• State and Commonwealth priorities do not always appear to relate or compliment each other, with different drivers influencing the direction of the Program from State to State. • States and the VET sector do not match focus on the same occupation bases as the Commonwealth via ANZSCO. • There can be a lack of continuity of funding for specific pilot programs where services accessed for a period cease. They may never return, and there can be duplication of similar funding across multiple programs. • There are challenges keeping up with funding criteria, when eligibility and incentive initiatives change.  
 
These factors can all lead to increased levels of system complexity and confusion. 
 
Mission Australia supports reforms that will simplify funding arrangements and methods for claiming entitlements, resulting in a reduction in administrative and management costs to Government, employers and service providers.  We recommend an end-to-end process review of administrative requirements and the establishment of common document forms and data management across states to promote efficiency and clarity. 
 
 
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4.  What does high quality on-the-job training for apprentices and trainees look like?  
 
Mission Australia has more than 30 years experience in the vocational sector and we understand the value of high quality on‐the‐job training for apprentices, employers and industry. These evidence based values include: 
 
• having adequate support, supervision and training supplied in the workplace • developing practical skills in the job role  • utilising skills taught in off-the-job training in a productive manner at the workplace • achieving transferable skills for a lifelong learning pathway  • an active role involvement in an employment relationship 
 
We value and support the concept raised by the Expert Panel for an improved national system of professional development being made available for Australian Apprentice employers and supervisors, to help equip them with the skills to coach, mentor and assess apprentices/trainees in the workplace.  
 
We would welcome any initiative that delivers improvement in outcomes for on the job training, especially for employers of trade apprentices. Training could be at a non-AQF standard with possible linkages to Award benefits such as higher duty allowances, similar to those provided for First Aid Certificates.  This would increase the emphasis and perceived value of the accreditation and would, in our view, improve completion outcomes. 
 
 
 
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5.  What is high quality off-the-job training for apprentices and trainees?  
 
High quality off‐the-job training provides: 
 
• the required underpinning knowledge that aligns with the AQF, • supports and links to the on-the-job training component, • knowledge and skills that are equivalent to others in training,  • transferable skills for lifelong learning  
 
Mission Australia recognises off-the-job training as being complementary and equally critical as quality on-the-job training. We welcome Senator Chris Evan’s announcement of legislation which seeks to increase the quality and consistency of VET sector service providers with the introduction of a national standard.  
 
Factors considered worthy in any reform process should include national standards for:  
 
• qualifications, experience and capability of frontline RTO staff to deliver training to apprentices and trainees, • meeting the needs of focus groups e.g. indigenous, disability as well as those with barriers to learning such language, literacy and numeracy needs, • industry driven and approved to meet industry requirements and adherence to improved concepts for Recognition of Prior Learning (RPL) & Recognition of Current Competency (RCC) applications, • pre-vocational or pre-apprenticeship models to increase engagement opportunities, • competency-based training, where a move away from flexible delivery options back to institutional based training would place the competency based concepts at risk, • recognition of qualifications to improve portability for today’s more mobile apprentices and trainees. 
 
 
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6.  How can employers and Registered Training Organisations work better together to deliver high quality training? 
 
Mission Australia understands that it is critical for RTOs to engage with employers, apprentices and trainees at the earliest possible juncture, in order to improve the retention and completion rates of apprentices and trainees.  
 
However, the wide range of flexible delivery and various RTO offerings available to employers, apprentices and trainees can contribute to confusion in making choices about training that best suit their workplace and individual needs.  The variety of offerings can vary from one region to another and in contrast and the choice of available training in remote areas can be limited.   
 
Reviewing the number of training initiatives, programs and models, with improved linkages to specific industry workforce development, would be a key element in employers and Registered Training Organisations working more effectively together.  This could be achieved with deeper employer engagement with peak bodies, Industry Skills Councils and other key stakeholders to provide tailored workforce based solutions.  We support the concept of nationally consistent KPI’s prescribed for RTO timeliness for initial engagement, and the establishment of a personalised training plan between the apprentice / trainee and their employer. 
 
 
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7.  How can government and industry organisations support employers to provide high quality training to their apprentices/trainees? 
 
Mission Australia appreciates that policy and service delivery decisions are a major contributor to the direction and success of the Australian Apprenticeship System. Long-term policies must consider how the Australian Apprenticeship Program, wider VET Programs, and Employment Programs, are able to meet government, employer and participant employment goals. 
 
Mission Australia welcomes the suggestions made by the Expert Panel for a National Custodian to provide holistic control of the Australian Apprenticeships system, and to maintain a national framework. Streamlining and more effective integration of programs and service delivery has been a feature of our submission.  
 
Integration of mixed services and government support of AAC within the Job Services Australia business is considered by Mission Australia to be beneficial, as it would allow for a reduction in the number of stakeholders. It would also improve the capacity for more seamless service, mentoring and pastoral support.  Support Services could be expanded and become an information source for students, potential apprentices and trainees and existing workers.  
 
Incentives such as short to medium term paid on-the-job training and paid wage subsidies upon commencement would assist employers to offset the cost of providing high quality on the job training.  This could take the form of an individually assessed notional bank modelled on the Job Services Australia Employment Pathway Fund.  
 
System reform across all policy areas for employment, the Australian Apprenticeships systems and the VET sector, to match outcome targets to the one occupation system – such as ANZSCO – would help achieve even higher levels of service consistency. Similar national reform in the area of wages, pre-apprenticeship & pre-vocation applications and competency based training, are also needed to enhance the uptake of apprenticeships and traineeships.  Again, Mission Australia recommends an integrated employment services approach to most effectively facilitate this in a streamlined way. 
 
 
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8.  In a tight fiscal environment, how should the Government target assistance to the Australian Apprenticeships system to support a skilled economy? 
 
Mission Australia understands and recognises the need for a proposed Shared Responsibility scheme. However, our experience shows that any potential model should consider specific categories or groupings on a scale that does not completely remove the monetary incentives available to any group. The model should direct larger targeted funding to particular industries, skills needs, occupations/vocations and priority groups. Under the model, performance could be anchored to the achievement of core milestones and a rebate or contribution system could be based on the achievement of these the milestones. 
 
We believe that appropriate evolution of the existing Australian Apprenticeship System will enable the integrated service delivery concept to become a reality. There are a number of significant Commonwealth Programs concluding over coming years and we understand that reforms to those Programs are being discussed. A review across similarly connected programs would be useful and logical as a step towards a more integrated solution to the development of a skilled economy, which more effectively maximises available funding sources to their best use, and overcomes potential duplication. 
 
Further, Mission Australia recognises the potential for significant Government investment into an E-business environment. This will further reduce the administrative complexities of the system. Electronic file keeping options and direct portal access to claim funds, would lead to cost savings and enable service providers to focus on the front end of the business – providing an effective entry point and pathways through the system. 
 
 
 
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9.  How should disadvantaged individuals be supported to engage in an apprenticeship or traineeship? 
 
Mission Australia strongly believe that the integration of AAC and JSA service delivery models could provide benefits to disadvantaged job seekers. Providers could offer improved linkages across programs, supported pathways, avoidance of duplicated programs and increased practical engagement and mentoring/pastoral support. 
 
The elimination of contractual barriers to access support and assistance is a positive move. This should be considered for programs such as AAC and Job Services Australia. Further, consideration should be given to increased targeted funding support under the proposed discretionary incentive funding, to assist potential disadvantaged apprentices and trainees become work ready. This would occur through training initiatives and would be supported practically throughout an individual’s initial 12 month training period by both the employer and the Pastoral Support Program. 
 
Disadvantaged individuals already participating in Job Services Australia would have better access to apprenticeships and traineeships if AAC services were more closely tied to mainstream services, thus broadening their vocational pathway options.  
 
Mission Australia has 150 years experience in working with the most disadvantaged individuals. We understand that disadvantaged people often require more comprehensive assessment, tailored recruitment and induction services, and a highly tailored approach to post-placement support.  These services may assist by addressing vocational and nonvocational barriers held by the apprentice or trainee, and support ongoing participation by addressing communication, literacy, numeracy, transport, cultural and social barriers. 
 
The following case study highlights how a disadvantaged trainee can benefit from dealing with a provider that offers a full range of assessment and support services, (including vocational and non-vocational offerings) such as Mission Australia:  
 
A 24 year old female client, diagnosed with schizoaffective disorder was referred to Mission Australia in the Central West of NSW. Our assessment revealed the complexity of her needs, including episodic homelessness and poor self esteem.  It was felt that she should receive comprehensive support through our Personal Helpers and Mentors Services (PHaM). She completed a Living Skills program under PHaM and was assisted to secure independent housing. Mission Australia also assisted the client with transport support and once her non-vocational barriers began to stabilise, the client was able to enrol in TAFE to progress her desire for a Child Care career. With ongoing post placement support, she was able to sustain her employment in this key growth industry. 
 
 
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10.  What can be done to raise the status of Australian Apprenticeships?  How can stakeholders participate in raising the status? 
 
Mission Australia welcomes the implementation of any strategy that raises the status of apprenticeships and traineeships by the Australian Government. 
 
In our experience, the profile of the Australian Apprenticeships or VET sector continues to lag inappropriately behind other options such as tertiary education. More clarity around the pathway and enhancing the quality of service delivery will help entice and encourage more people into the system.    
 
Australian Apprenticeship Centres are well placed to continue to use their employer and industry engagement footprint across the 120,000 active employers that they currently service. Improved outcomes would result however if those services were more closely integrated with Job Services Australia. This can be achieved by retaining the specialist experience within the apprenticeship industry, but providing better and more formal linkages to stream services to ensure better front-end and post placement support. This would include improved earlier intervention pathways. Improved apprenticeship and traineeship outcomes would lead to improved employer satisfaction and, in turn, a raising of the value of hiring an Australian Apprentice.  
 
 
 
11.  What are the barriers to more widespread adoption of competency-based progression in apprenticeships and traineeships?  How can these barriers be overcome?  
 
Mission Australia has seen the barriers caused by a lack of