The Journey-person to Apprentice Ratio: What's in a Number? We

25 Pages·2013·0.49 MB·English

by  Daniel Scown

The Journey-person to Apprentice Ratio: What’s in a Number?

We approach the discussion of reviewing the journey-person to apprentice ratio by stating that
there is no objective, empirical way to determine the optimal ratio. A comparable quest can be
found in what has been written in the voluminous literature on formal organizations about the
concept of span of control.1 Therefore, how does one arrive at an optimal journeyperson to
apprenticeship ratio? In Ontario's unionized construction industry, the ratio is determined
through collective bargaining between accredited representatives of the employer and employee
sides, respectively, and reflected in provincial legislation. In the negotiations regarding an
optimal ratio, there is little doubt that certain considerations are taken into account. Throughout
the course of this submission we intend to identify those considerations and apply them to the
practice of the general carpenter trade in Ontario.

I. Scope and Practice of the General Carpenter Trade2
Carpenters construct, renovate and repair residential, institutional, commercial and industrial
(ICI) structures made of wood, steel, concrete, and other materials. They can work for a wide
array of employers, including new home builders and renovation firms, construction firms,
building owners and users, building developers, and government departments. Many
carpenters are union members and a significant number are self-employed.

While the scope of the carpenter trade includes many aspects of building construction, a
growing number of carpenters work for contractors who specialize in such areas of trade
practice as concrete forming, framing, finishing, interior systems, and renovation. Carpenters
are employed in a variety of job environments, including houses under construction or
renovation, plants that pre-fabricate buildings, and commercial and industrial sites.
Some important competencies of a carpenter are good knowledge of mathematics, the ability to
use metric and imperial measurements, an understanding of building science, communication
and problem solving skills, and the ability to work independently or as part of a team. Other
skills present in a competent carpenter are the ability to work at heights, the ability to stand or

1 See, for example, The Economist, Span of Control, accessed at
http://www.economist.com/node/14301444.
2 The description of the scope and practice of the general carpenter trade is taken from Human
Resources and Skills Development Canada, Occupational Analysis Series: Carpenter, Ottawa: 2010,
page 4.
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kneel for long periods of time, manual dexterity, and good balance. Carpentry is a physically
demanding occupation requiring the lifting of heavy tools and materials. As carpentry is
primarily a work-based training trade, mentoring of apprentices and workers is a necessary skill
for journey-person carpenters. Experienced carpenters may advance to foreman and
construction superintendent or may become contractors. Carpenters are involved in every step
of building construction, which is an advantage when applying for supervisory positions.
II. General Carpenter Apprenticeship Program

General Carpenter is a voluntary certified trade regulated under the Trades Qualification and
Apprenticeship Act. On successfully completing the apprenticeship program and passing the
trade examination, a person working in this trade is entitled to a Certificate of Apprenticeship
and a Certificate of Qualification.3

The General Carpenter Apprenticeship program is 7,200 hours in length consisting of in-school
(theoretical) and on-the-job training. The in-school portion of training is divided into three
intensive eight-week blocks consisting of 240 hours per block: Level 1 or Basic schooling; Level
2 or Intermediate schooling; and Level 3 or Advanced schooling. In-school training for general
carpenter apprentices includes instruction in: safety; material and tools; plans, specifications,
and building codes; estimating, calculations, and layout; metal cutting and welding; residential
construction; and commercial construction.4 The work experience portion of apprenticeship
consists of 6,480 hours related to the skills outlined in the General Carpenter Apprenticeship
Training Standard (Ministry of Training Colleges & Universities, 2010).

Because general carpentry is currently a non-compulsory trade, the reality is that a significant
number of “apprentices” in this province do not pursue a formal apprenticeship and therefore do
not benefit from formal instruction in best practices related to health and safety and trade
specific skills. The current ratio (1:1 and 4:1) ensures that all apprentices receive adequate
supervision and instruction while at work.

3 “Apprenticeship Program: General Carpenter 403A”, Employment Ontario: Queens Printer for Ontario,
2009.
4 “Apprenticeship Program: General Carpenter 403A”.
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III. Health & Safety Considerations

The Canadian Council of Directors of Apprenticeship (CCDA) recognizes the National
Occupational Analysis as the national standard for the occupation of carpenter.5 As a preamble
to this part of our submission, it is useful to make two authoritative references. The first comes
from the National Occupational Analysis:

Safe working procedures and conditions, accident prevention, and the preservation of
health are of primary importance to industry in Canada. These responsibilities are
shared and require the joint efforts of government, employers and employees. It is
imperative that all parties become aware of circumstances that may lead to injury or
harm. Safe learning experiences and work environments can be created by controlling
the variables and behaviours that may contribute to accidents or injury. … It is
imperative to apply and be familiar with the Occupational Health and Safety (OH&S)
Acts and Regulations, and Workplace Hazardous Materials Information System
(WHMIS) Regulations. … Safety is of prime importance to all carpenters. There is some
risk of injury resulting from slips and falls, falling objects and the use of hand and power
tools. The proper use of personal protective equipment is very important to carpenters
regardless of their location of work. Risk assessments prior to performing tasks are very
important. 6

In the National Occupational Analysis, many of the requirements regarding health and safety in
the carpentry trade are set out under the heading of “Common Occupational Skills”. The
message contained in this national standard for carpenters is clear – health and safety
knowledge and practices are embedded in the learning path from apprentice to journey-person.

The second authoritative reference is taken from the web site of the Ontario Ministry of Labour,
the organization responsible for enforcing laws regarding workplace health and safety. The
Ministry of Labour states the following regarding the supervision of young workers (defined as
under 25 years of age): “Keep in mind that…young workers often can’t recognize health and
safety hazards and hesitate to ask questions [and] …new and young workers are much more
likely to be injured on the job.”7

Adequate supervision of apprentices by an appropriate number of journey-persons is essential
to ensuring that lesser experienced workers do not inadvertently do anything that may place the

5 Human Resources and Skills Development Canada, Occupational Analysis Series: Carpenter, Ottawa:
2010, page I.
6 Human Resources and Skills Development Canada, Occupational Analysis Series: Carpenter, Ottawa:
2010, pages 3-4.
7 Accessed at http://www.labour.gov.on.ca/english/hs/pdf/yw_tips_supervisors.pdf.
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health or safety of themselves, their co-workers, or the public at risk. The linkage of effective
supervision with a reduction in the rate of lost-time injuries in construction has been
demonstrated empirically by research carried out by the Construction Safety Association (now
part of Infrastructure Health & Safety Association). “The results show that as the density of
trained supervisors increases, there is a statistically significant reduction in the rate of lost-time
injuries.” 8

In the apprenticeship system, the journey-person is both a teacher and supervisor of the
apprentice in the venue where the bulk of the training takes place – the work site. “Density” of
supervision must be balanced against the journey-person’s main responsibility to complete
project work in a timely and productive manner. For example, under a 1:1 journey-person to
apprentice ratio, a single journey-person, no matter how experienced and conscientious, cannot
possibly be expected to oversee both the project work and health and safety practices of an
apprentice 100% of the time while still performing his/her project work safely and productively.
Under a 4:1 scenario, the density of supervision (and teaching) increases in that “four sets of
eyes are better than one” when it comes to supervising and guiding the work of the lesser
experienced and aware apprentice.

As noted in the National Occupational Analysis, an area of great risk is the use of power,
powder-actuated, compressed gas-powered, and pneumatic tools. Proper use, care, and
storage of tools and equipment are essential skills for apprentices to learn and to practice. Safe
tool use and housekeeping practices only develop with time, intensive supervision, and
consistent reminders of what can happen if the apprentice is not vigilant with respect to his/her
habits and practices. A very common tendency of apprentices is to injure themselves by using
sharp cutting tools improperly (for example, chisels).

Data available from the Infrastructure Health & Safety Association9 demonstrate that a
substantial share of workplace injuries is the consequence of worker contact with objects or
equipment (see Table 1). In the construction sectors where many carpenters (both union and
non-union) work, contact with objects and equipment accounts for one-quarter to one-third of
lost-time injuries.

8 D.J. McVittie and P. Vi, The Effect of Supervisory Training on Lost-time Injury Rates in Construction,
February 2009, accessed at http://www.ihsa.ca/pdfs/research_docs/374_W040.pdf.
9 Accessed at http://www.ihsa.ca.

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Table 1: Contact With Objects and Equipment as a % Share of Lost-time Injury Incidents
by Construction Sector, Ontario, 2007-2011
Rate Group 719: Inside Finishing
Objects & Equipment
2007 24.6
2008 25.9
2009 26.0
2010 28.7
2011 23.6
Rate Group 723: ICI Construction
Objects & Equipment
2007 31.6
2008 26.4
2009 24.7
2010 28.3
2011 33.0
Rate Group 751: Siding and Outside Finishing
Objects & Equipment
2007 32.1
2008 31.2
2009 29.9
2010 33.5
2011 29.3
Source: Infrastructure Health & Safety Association.

It is interesting to compare the “injury performance” of two sectors, homebuilding (Rate Group
764) and ICI construction, with respect to the contact with objects and equipment category. The
data in Table 2 provide this comparison. On average over the past five years, around two-fifths
of lost-time injuries in the homebuilding group have resulted from contact with objects and
equipment. The average share in the ICI sector is about three-tenths. Homebuilding is largely
conducted by the use of non-union trade-persons; ICI construction has a high rate of union
penetration. Is the differential in the share of lost-time injuries due to contact with objects and
equipment attributable to differentials in training and supervision between the sectors?

Table 2: Contact With Objects and Equipment as a % Share of Lost-time Injury Incidents
by Construction Sector, Ontario, 2007-2011

Homebuilding ICI
2007 39.5 31.6
2008 38.8 26.4
2009 36.3 24.7
2010 37.9 28.3
2011 38.5 33.0
Average 38.2 28.8
Source: Infrastructure Health & Safety Association.
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One of the “trends” identified in the 2010 National Occupational Analysis is that “scissor lifts,
rolling platforms and zoom booms are replacing scaffolding and ladders on many job sites.”10
Working above ground level is an essential aspect of the carpentry trade. Carpenters who
install siding, roof buildings, erect scaffolding, or build forms for cast-in-place concrete spend
much of their productive time working on elevated platforms. To accomplish these tasks
efficiently two pieces of equipment are increasingly deployed – the self-propelled articulating
boom (zoom boom) and the compact telehandler (rough terrain forklift). However, to deploy a
zoom boom or rough terrain forklift is not simply a matter of purchase or rental. The real issue
is the training of a sufficient number of “competent operators”. Section 51 of Regulation 851
under the OHSA requires that the operator of a rough terrain forklift and other powered lift trucks
be a competent person.11 OHSA defines a “competent person" as someone who has the
"knowledge, training, and experience to organize the work and its performance". A similar
approach to ensuring operator competency is required under Ontario Regulation 231/91
(OHSA) with respect to elevating work platforms such as a zoom boom.12

Apprentices are inexperienced workers in need of constant and consistent mentorship and
supervision by highly trained and experienced journey-persons. Table 3 shows that
construction workers under 35 have accounted for a substantial share of lost-time injuries,
especially in the non-unionized homebuilding sector, since 2007.

Table 3: % Share of Lost-time Injuries by Age Group and Construction Sector, Ontario,
2007-2011
RG 764 15-24 25-34 <35 RG 751 15-24 25-34 <35
2007 24.2 27.2 51.4 2007 16.6 31.9 48.5
2008 25.0 24.6 49.6 2008 17.0 28.7 45.7
2009 22.2 26.3 48.5 2009 18.9 24.8 43.7
2010 21.0 28.8 49.8 2010 14.9 26.4 41.3
2011 21.2 32.1 53.3 2011 15.7 33.3 49.0
RG 719 15-24 25-34 <35 RG 723 15-24 25-34 <35
2007 14.3 22.3 36.6 2007 16.1 20.5 36.6
2008 18.1 22.5 40.6 2008 15.5 21.2 36.7
2009 17.9 23.0 40.9 2009 16.8 24.2 41.0
2010 15.6 26.0 41.6 2010 15.4 26.1 41.5
2011 12.8 27.4 40.2 2011 16.2 25.8 42.0
Source: Infrastructure Health & Safety Association.

10 Human Resources and Skills Development Canada, Occupational Analysis Series: Carpenter, page 7.
11 This discussion of operator competency is based on the Guideline for the Safe Operation and
Maintenance of Powered Lift Trucks published by the Ontario Ministry of Labour.
12 Ontario Regulation 213/91, Part II, sections 143-149.
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Between 1990 and 2008, 162 of the 384 fatalities (42%) in Ontario’s construction industry were
the result of falls. Falls accounted for the largest share of fatal incidents. Sixteen (16) percent
of fatalities were the result of a worker being struck by construction equipment and vehicles.13 .
It is also a sad but real fact that between 2004 and 2008 in Ontario one-third of the fatalities
among young workers (under 25) were in the construction industry.14 Table 4 indicates that
since 2007 falls have accounted for one-fifth to one-third of lost-time injury incidents in the
construction sectors where general carpenters work.

Table 4: Falls as a % Share of Lost-time Injury Incidents by Construction Sector, Ontario,
2007-2011
Rate group 719: Inside Finishing
Fall to Lower Level Fall on Same Level Both
2007 23.6 8.4 32.0
2008 19.4 6.9 26.3
2009 20.6 5.9 26.5
2010 23.1 7.1 30.2
2011 23.6 7.0 30.6
Rate group 723: ICI Construction
Fall to Lower Level Fall on Same Level Both
2007 9.9 11.3 21.2
2008 10.3 12.1 22.4
2009 13.8 8.4 22.2
2010 17.8 9.4 27.2
2011 17.3 9.6 26.9
Rate group 751: Siding and Outside Finishing
Fall to Lower Level Fall on Same Level Both
2007 15.9 7.8 23.7
2008 17.0 11.1 28.1
2009 13.5 8.9 22.4
2010 13.4 7.1 20.5
2011 14.7 7.7 22.4
Source: Infrastructure Health & Safety Association.

These trends regarding health and safety in the construction industry have occurred with the
current journey-person to apprentice ratio in place. They demonstrate the continuing need for
effective supervision. Lower ratios such as 1:1 or 2:1 would provide less apprentice supervision
and fewer training opportunities given the prime directive of the journey-person – complete the
job productively and on time.

13 Accessed at http://www.ihsa.ca.
14 Workplace Safety and Insurance Board of Ontario, Young Worker Statistics 2008, Table 23, page 32.
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IV. Environmental Issues

According to the National Occupational Analysis recognized by the CCDA, “[t]here are a number
of ‘green building’ certification systems becoming commonplace in the governmental and private
construction industry.15 Leadership in Energy and Environment Design (LEED)16 is a building
certification system developed in 1998 by the U.S. Green Building Council. Since 1998, the
system has been introduced into 30 countries. In Canada, the LEED certification system is
administered by Canada Green Building Council (CGBC).17 This council also certifies
consultants in the application of LEED criteria to the design of projects. Most major architectural
firms now have LEED certified architects and designers.

LEED professional certification is also being adopted by engineering consultancies. Under the
LEED certification system, a project is awarded points under five categories: sustainability,
water efficiency, energy and atmosphere, materials and resources, and indoor environmental
quality. Four levels of certification are currently available.

The LEED certification system was designed for commercial and institutional buildings. It has
since been extended to multi-unit residential structures. There are currently no LEED standards
for low-rise residential buildings.

LEED is currently an entirely voluntary system of project certification. LEED certification now
applies only to a comparatively small proportion of new structures. The Canada Green Building
Council reports only 300 certified projects in its portfolio of approvals. It should be expected,
however, that public sector owner-developers will embrace LEED standards. In 2005, the
federal government directed that all new federal building projects be LEED compliant. Also, the
City of Ottawa put in place a Green Building Policy for the Construction of Corporate Buildings.18

Is there any doubt that environmental considerations will loom larger in the future as part of the
learning regime of a general carpentry apprentice? The National Occupational Analysis
anticipates this trend. The potential for balance between the journey-person’s responsibility to

15 Human Resources and Skills Development Canada, Occupational Analysis Series: Carpenter, page 6.
16 This discussion of LEED is taken from Human Resource Management in the Cast-in-Place Concrete
Industry in Ontario: Trends, Issues, and Recommendations, Part X.
17 http://www.cagbc.org.
18 Accessed at http://www.ottawa.ca/city_hall/policies/green_building/index_en.html#P84_6030.
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teach and supervise apprentices as well as get the job done for his or her employer is higher
within the confines of the current ratio than it would be under a lower ratio such as 1:1 or 2:1.
As is the case with health and safety, mitigating environmental harm through on-the-job training
is better accomplished by using “four sets of eyes” than one.

V. Economic Impact

As we stated at the outset of this submission, in Ontario's unionized construction industry the
journey-person to apprentice ratio for the trade of general carpenter is determined through
collective bargaining between accredited representatives of the employer and employee sides,
respectively, and reflected in provincial legislation. In the negotiations regarding an optimal
ratio, there is little doubt that certain economic considerations are taken into account. One
consideration is the impact of teaching an apprentice on the capacity of the journey-person to
perform his or her work in a manner that advances both the economic interests of the employer
and the journey-person. The short term economic interests of both the employer and the
journey-person are focused on completing the contracted job in a manner that is acceptable to
the customer. This not only ensures current income but also provides a basis for future income
for both parties. In the longer term, it is in the economic interest of both the employer and the
journey-person to ensure that younger workers enter the carpentry trade through apprenticeship
and progress in a systematic way towards the attainment of a full skill set. In determining an
optimal journey-person to apprentice ratio, a balance must be struck between these short- and
long-term economic interests in terms of the time that a journey-person can allocate towards
teaching and job task completion.

The ratio is also likely struck with an eye towards the level of teaching skill possessed by the
journey-person. Neither the in-school or on-the-job learning regimes of a carpentry apprentice
prepare him or her to be a competent teacher once they have achieved journey-person status.
The purpose of the learning regimes is to produce a competent journey-person in carpentry.
The level of teaching skill required to develop a competent apprentice while at the same time
performing project work to the best of one's ability should not be underestimated. Hence,
intuitively it is clear that a lower ratio presents daunting issues with respect to the training of an
apprentice and the short- and long-term economic interests of both employers and members of
the carpentry trade.

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Determining the optimal ratio must also factor in whether the ratio either facilitates or restricts
the entry of apprentices into the carpentry trade. The lowest ratio of one journey-person for
each apprentice maximizes the number of apprenticeship openings but it may also lower
worksite productivity. Lower productivity may be particularly problematic for a large firm
undertaking a major project such as a hospital or a school. For example, a firm with 50
apprentices and 50 journey-persons (i.e., a ratio of 1 to 1) will have to strike a delicate balance
between project completion and apprenticeship learning.

A higher ratio such as four journey-persons for each apprentice certainly decreases the number
of potential apprenticeship openings. It increases the employer’s wage costs because of the
higher proportion of journey-persons in the workforce. However, it also enhances teaching
effectiveness by spreading the opportunity costs associated with teaching apprentices among a
larger group of journey-persons. From an apprentice's perspective, he or she wants a
competitive opportunity to enter the trade and progress systematically through the learning
regime and wage scale and ultimately to obtain journey-person status.

Any ratio that is set will be an amalgam of these economic considerations. Weighing the
importance of these considerations is part art and part science but ultimately it is what the
stakeholders think will work best. It is our considered view that the existing ratio represents the
best balance among the interrelated economic interests of the employer, the journeyperson, the
apprentice, the union, and the trade.

VI. Number of Apprentices and Journey-persons19

In December, 2012, 10,729 members of the Carpenters' Union in Ontario were general
carpenters. One-third (33%) of these members were apprentices. Between 2010 and 2012, the
unionized general carpentry work force grew by five percent across the province. The growth
was driven by an 18% increase in the number of apprentices. The number of journey-persons
remained stable. Growth in the unionized carpentry work force occurred during the same
period, despite a decrease of almost 12% in employment in the “construction of buildings” sub-

19 Unless noted otherwise the data on the number of apprentices and journey-persons has been provided
by the Carpenters’ District Council of Ontario (CDCO).
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