A Critical Analysis of Apprenticeship Programs in British Columbia
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A Critical Analysis of Apprenticeship Programs in British Columbia by Gregory Matte A thesis submitted to the Faculty of Graduate and Postdoctoral Affairs in partial fulfillment of the requirements for the degree of Doctor of Philosophy in Public Policy Carleton University Ottawa, Ontario © 2020 Gregory Matte Abstract This study examines issues surrounding apprenticeships in the construction industry in British Columbia (BC) during the period of 1993 to 2004, particularly the state of the social settlement amongst its primary stakeholders, namely the government, unionized and non-unionized employment associations and post- secondary colleges. It provides a conceptual framework to research apprenticeships as a skills ecosystem, and to explain why successive provincial governments were motivated to impose significant legislative changes on the vocational education and training system. The findings not only examine the motivation, but also the resulting outcomes, using the different political ideologies as a basis to explain how contrasting stakeholder perspectives shaped both. Based on a combination of structure and agency, the primary stakeholders operated within the confines of institutional structures, extant logics and the limitations of their own perspectives and objectives. This thesis examines how the relationships between apprenticeships, the labour market and the post-secondary education system are coordinated, governed, influenced and shaped in BC, as well as how these same relationships have evolved, including the impact of such changes on apprenticeship programs as a skills ecosystem. The period of 1993 to 2004 was specifically chosen as it was a period of bold political reforms pertaining to trades training within the province by two ideologically opposed political parties. The research design applies a case study 2 methodology, comparing the differences between these two governments, as well as process tracing, within the theoretical framework of historical institutionalism. The findings demonstrate that apprenticeships are a unique skills training ecosystem that typify an employment logic, but are nestled within a broader vocational education system that is typified by an education logic. The exogenous market forces of Canada’s liberal market economy, as well as the predominant education logic typified by BC’s post-secondary education system, were found to contribute to the stakeholder tensions and resulting pressures on apprenticeships as a unique skills ecosystem. These pressures contributed to a weakening of collaboration amongst the primary stakeholders during the research period, rather than convergence towards supporting different government legislative initiatives. The findings demonstrate the influence of the provincial government in affecting (for better or worse) outcomes on post-secondary programs involving multiple stakeholders and multiple institutions, thereby highlighting the need for strategic government leadership that rises above partisan interests. While both the New Democratic Party (NDP) and Liberal governments stated an interest in improving apprenticeships, particularly achieving higher completion rates, they allowed partisan interests to undermine these objectives at the expense of the apprentices themselves. 3 Acknowledgements It is with tremendous humility that I conclude this thesis and the accompanying doctoral studies that have pre-occupied me for over a decade on a part-time basis. This accomplishment in many ways is a tribute to my father, Roland Gerald Matte, who was gifted a brilliant mind and incredible inquisitiveness, but whose circumstances (as the oldest of 16 children) was denied a formal education beyond Grade 8. His auto-didactic spirit of continuous learning and the value of knowledge provided a meaningful basis for the time, effort and sacrifice that my own PhD efforts required. I would be remiss not to attribute this achievement to my mother, Marlene Glenora Richards (née Morse) who provided the same love, encouragement and pride in my doctoral studies that she provided me throughout my academic “upbringing”. To my children, Natasha Karin Nicole Matte and Joshua Nicholas Kristian Matte, I dedicate this monumental effort to you as my determination to provide you leadership by example, and to demonstrate that there are no insurmountable goals in life, nor any age limitation to achieving both self-actualization as well as a meaningful contribution to mankind. To my former wife Lori Wickert, I express my appreciation for her many helpful tips and continuous support in this endeavour. To my partner Sandra Lynn Heggie, I express my tremendous appreciation for her incredible patience, understanding, support and motivation to complete my thesis. 4 Finally, I would be remiss not to thank my committee (Professor Leslie Pal and Professor José Galdo) and my co-advisors (Professor Calum Carmichael and Professor Leesa Wheelahan) for their commitment, support and guidance throughout my thesis efforts over the past four years. Finally, a very special thank-you to Professor Wheelahan for her belief in me, her unfailing support throughout my academic apprenticeship and for welcoming me into her international community of scholars whose academic interests are focused on vocational education and training. 5 Table of Contents Abstract .........................................................................................................................................2 List of Tables ................................................................................................................................9 List of Figures ..............................................................................................................................9 List of Appendices ................................................................................................................... 10 Glossary ...................................................................................................................................... 11 Chapter 1: Introduction ........................................................................................................ 12 Background to the Selection of the Research Case Study .................................................. 16 Focus of the Research ..................................................................................................................... 22 Research Questions ......................................................................................................................... 24 Chapter 2: Vocational Education Training in British Columbia ............................... 26 Introduction ....................................................................................................................................... 26 Origins of Apprenticeships ........................................................................................................... 27 Origins of Apprenticeships and Trades Training in BC.................................................................................... 30 Institutionalization of VET within the Post-secondary Education System ............................................. 36 Divergence – Apprenticeship Skills Ecosystem within the Broader VET System ................................ 40 Attempts to Rectify Bureaucratic Overlap between Ministries.................................................................... 42 Examining Apprenticeships as a Unique Form of VET ....................................................... 46 The Apprenticeship Process for Earning the Certificate of Qualification ................................................ 50 Certification in the Construction Trades ................................................................................................................ 54 Primary Stakeholders in Apprenticeships in BC ................................................................................................. 58 Political Influences on BC’s VET System and Apprenticeships .................................................................... 66 Summary ............................................................................................................................................. 72 Chapter 3 – Problematizing and Conceptualizing the Apprenticeship Skills Ecosystem .................................................................................................................................. 75 Introduction ....................................................................................................................................... 75 Developing a Conceptual Framework ...................................................................................... 76 Conceptualizing Apprenticeships as a Skills Ecosystem .................................................... 78 Problematizing the Situation for a Theoretical Analysis .................................................. 81 Theoretical Components of the Conceptual Framework ................................................... 84 Historical Institutionalism ............................................................................................................................................ 85 Varieties of Capitalism .................................................................................................................................................... 89 Skills Ecosystems .............................................................................................................................................................