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YOUTH SKILLS AND JOBS: Contribution of Apprenticeships

This is the second of a five-part article series by Dr David Smawfield, an international expert on technical and vocational education and training, exploring different dimensions of youth skills development for jobs and employability. This series leads to a discourse at the ADB International Skills Development Forum in Manila from 10-12 December 2013. Edited, Shanti Jagannathan, ADB. 

The main strengths of apprenticeships in skills development are that they reinforce the demand side in skills utilization by employers on the one hand and enable apprentices to apply skills learned in the workplace immediately without much time and transmission loss. However, in developing economies formal apprenticeships through formal technical and vocational education and training (TVET) are available only for a small minority of young people.

The majority of youth in developing countries work in the informal economy and it is thus informal apprenticeships that provide the largest and in some cases only advancement opportunity for young people. The informal apprenticeship system is inherently weaker in terms of quality and consistency of approach and does not provide much scope for monitoring and regulation compared to its formal counterpart. Therefore, there is much to be done to strengthen the apprenticeships regime for informal sector occupations. An ILO Report on The Youth Unemployment Crisis has prioritised the following for system improvement:

  • complement learning at the workplace with      more structured institutional learning;
  • upgrade the skills of master crafts      persons, e.g. by introducing modern technology and upgrading pedagogical      skills;
  • involve business associations and labour      organizations, especially those representing the informal economy;
  • introduce standardized contracts and      certification;
  • include literacy/numeracy training and      livelihoods skills; and
  • strengthen community involvement to open      more occupations for young women.

The ILO publication Upgrading Informal Apprenticeship: A Resource Guide for Africa advocates efforts to build bridges between informal and formal apprenticeship modalities. Examples of strategies identified for consideration (referenced to Africa, but arguably with wider relevance) include: promoting inclusion of informal apprenticeship in national training systems; devising skills development strategies inclusive of informal apprenticeship; improving recognition by involving other reliable institutions; by providing finance; and through introducing skills assessment of apprentices. The last mentioned has particular potential, particularly where competency based approaches are used. Apprentices can submit themselves for testing at formal testing centres. Provided competences can be demonstrated, it should not matter where or how these were attained: formally or informally. This is an approach adopted on a pilot basis by the EC funded ‘Labour Market Information Project’ in Vietnam. Pilot centres have been set up in formal training institutions where anyone can go for testing of their competences in welding.

In the aftermath of the global financial crisis, developed economies found that apprenticeships can be a powerful way to tackle youth unemployment and such programs have been given new impetus and emphasis.  A 2013 international study on good practice principles in apprenticeship systems compared and contrasted apprenticeship systems in 11 countries and has suggested that governments may consider  the promotion of the ‘brand’ of apprenticeship, particularly in countries where the status of apprenticeships is low. Measures such as promotion of apprenticeships as a valued school-leaving pathway, awareness building of secondary school and careers staff about apprenticeships, making apprenticeships more attractive through providing pathways to higher level qualifications, and encouragement to recognize apprentice qualifications for recruitment to jobs and/or reward with higher pay can contribute positively.

RIGHTS TO SKILLS, Manish Sabharwal. Chairman, Teamlease Services

Rights are not reducing poverty. Time to place skills and employment at the heart of policy It’s been raining “Rights” in Indian policy for the last few years; education, work, food, service, healthcare, and much else. This “diet coke” approach to poverty reduction – the sweetness without the calories – was always dangerous because of unknown side effects. Commenting in 1790 on the consequences of the French revolution, Edmund Burke said “They have found their punishment in their success; laws overturned, tribunals subverted, industry without vigor, commerce expiring, the revenue unpaid, yet the people impoverished and a state not relieved”. Not very differently, early results of this “policy revolution by fatwa” – MNREGS, Right to Education, Right to Food, Right to Service, etc –suggests that it has led to 15 interest rate hikes in 12 months, is destroying government finances, fuelling inflation, and encouraging civil society to subvert democracy. It also reminds us that policy entrepreneurship, like all entrepreneurship, is not exempt from the rule that big ideas without execution and resources are ineffective. Outlays don’t lead to outcomes because poetry is useless without plumbing. But there is an alternative for reducing poverty to this impatient state driven idealism; Skills and Jobs. Poverty reduction comes from an individual’s ability to access opportunities. Unfortunately unemployability is a bigger problem than unemployment; 58% of India’s youth suffer from some skill deprivation. India’s skill crisis is a child of a fragmented regulatory regime (state vs. centre, 19 ministries vs. 2 human capital ministries), the dead-end view of vocational training (the lack of vertical mobility between certificates, diplomas and degrees), a broken apprenticeship regime (we only have 2.5 lac apprentices relative to 6 and 10 million in Germany and Japan), a weak job framework (the national occupation codes don’t create a shared thought world for employers and educators), no linking of financing to outcomes (we pay for training not jobs), no separation of financing from delivery (creating competition to government delivery by using government money for private delivery) and dysfunctional employment exchanges (1200 of them gave 3 lac jobs to the 4 crore people registered last year). The policy agenda around skills is not impossible or unknown. Employment Exchanges need to become public private partnership career centers that offer counseling, assessment, training, apprenticeships and job matching. The Apprenticeship Act of 1961 must be amended to view an apprenticeship as a classroom rather than a job and shift the regulatory thought world from push (employers under the threat of jail) to pull (make them volunteers). The National Vocational Educational Qualification Framework must be agreed by the states and the Ministries of Labour and HRD as the unifying open architecture tool for recognition of prior learning and vertical mobility between school leavers, certificates, diplomas and degrees. Delivery systems are in the hands of states and every state must create a skill mission or vocational training corporation tasked with building capacity and quality. States should also create asset banks to make existing government real estate available for skill delivery. All schools must teach English because English is like Windows; an operating system that creates geographic mobility and improves employment outcomes by 300%. Schools and Colleges must selectively embed vocational subjects – particularly soft skills – into their curriculum. The regulatory cholesterol around national distance education (mail order, e-learning and satellite) must be reviewed to offer flexible options for workers already in the workforce and the geographically disadvantaged. We must create a national network of community colleges offering two year associate degrees; these colleges, rooted in the local ecosystem, will serve the informal sector (92% of employment) This missing mezzanine layer – their two years programs are not normal degrees on a diet but vocational training on steroids – would bridge the gap between vocational education and training but make the system more inclusive. Finally, we must created skill vouchers that will allow financially disadvantaged students to get trained wherever they want at government expense. Such vouchers would shift the system to funding students rather institutions should be funded by money carved out of the MNREGS budget. Unlike the skill agenda, the job creation agenda is more complex and controversial. But few disagree about the shame in four employment statistics being exactly where they were in 1991; 92% informal employment, 12% manufacturing employment, 50% self-employment and 58% agricultural employment. Economists do not understand how job are created or why they cluster where they do. But the broad contours of fertile soil for job creation are obvious; a flexible labour market, skilled employees, robust infrastructure, and predictable legislation. A flexible labour market is important; most economists agree that our labour law regime is poisonous. India’s labour laws – our employment contracts are marriage without divorce – have created a labour aristocracy (only 8% of our labour force works in the organized sector) that perpetuates labour laws which cripple India’s ability to compete with China in organized manufacturing. The labour law issue is closely related to the skill issue because expanding formal employment is the key to third-party financing of skill development and expanding manufacturing employment is key to getting people off farms (58% of our people produce 18% of our GDP). It’s late but not too late to change the tragic reality that the two most important decisions a child in India makes is choosing their parents and pin code wisely. Mughal Emperor Jahangir told his gardener in Kashmir that if a tree takes 100 years to mature, that’s all the more reason to plant it as soon as possible. In other words, the best time to start changing our skill system and reforming labour laws was twenty years ago. The second best time is now. India’s new tryst with destiny – putting poverty in the museum it belongs – doesn’t need more “Rights” but more jobs and more skills. And creating jobs and skills doesn’t need new ideas but courage. Not more strategy but more execution. Any takers?