Current workforce literacy provision

Introduction

In her introduction to Reading Work: Literacies in The New Workplace, Nancy Jackson reminds us that that the workplace is contested terrain. She argues that literacy is more than reading and writing and more than functional skills. She uses the metaphor of the tapestry to show literacy as a social practice:

This contested terrain plays out in the Canadian workplace literacy context in different approaches to workplace literacy. For example, the list of organizations that use the government’s Essential Skills Initiative focusing on nine Essential Skills with five complexity levels is growing, as is the development of spin-offs from the Essential Skills framework. Also growing is the prominent focus on Essential Skills in the federal government’s recent RFP and name change. [3]

However, other approaches are evident. Unions in Canada have taken a leadership role in innovation in literacy and adult education. [4] For unions, literacy is about focusing on the whole person with a broad democratic vision of literacy. Tamara Levine gives an example of what literacy could mean as an exercise of critical reflections and action. One of the night cleaners in a literacy class had cut his hand on a rusty garbage can. It was an ongoing problem known by the others in the class but nothing had been done about it. The teacher, a co-worker and peer used the situation for learning. The class talked about what they could do about the situation. They read clauses in their collective agreement and wrote a letter to the health and safety committee. The literacy development came out of real experiences or social context and group action. [4]

Main stakeholders

The main stakeholders in workplace literacy in Canada are included below:

Government

Government involvement in workplace literacy operates at two main levels.

• federal government through the Office of Literacy and Essential Skills
• provincial government through a variety of ministries depending on the province or territory.

Since 1988, the role of the federal government has been to support workplace literacy through project funding through national projects and federal/provincial cost-shared projects. However, for many years, partners have called for a Pan-Canadian literacy strategy which would provide national leadership, goals, principles and resources towards the design and implementation of a comprehensive adult learning system that respects other jurisdictions. To date, this has not happened.

Provincial and territorial governments are responsible for the direct delivery of literacy and ABE, including workforce and workplace literacy. Provinces have various levels of commitment to workforce and workplace literacy.

Unions

Union involvement in workplace literacy takes place in several ways:

• through national bodies like the Canadian Labour Congress
• through national unions
• through provincial and territorial federations of labour
• through union locals.

Unions have played a leadership role in Canada in developing worker-centred literacy through awareness building, research, learning tools and the development of programs and clear language strategies at national, provincial and territorial and local levels.

Employers

Employers involved in workplace literacy include:

• individual private and public sector employers
• employer organizations such as the Canadian Manufacturers and Exporters (CME), Conference Board of Canada [5] or Canadian Association of Municipal Administrators (CAMA)

While organizations like the CME, Conference Board of Canada and CAMA have played a leadership role in workplace literacy through NLS project funding, overall commitment of employers to training and education and workplace literacy is low. Research indicates that investment of government financial resources, support and employer incentives are key to their involvement and commitment.

National Adult Literacy Data Base (NALD)

NALD is an award-winning service that provides a number of services including complete, full-text documents and books, as well as a resource catalogue for literacy and literacy-related topics including workforce and workplace literacy.

Recently NALD received three-year funding from the federal government to develop a sister website toNALD—NALD@Work. The new site will focus on workplace literacy and essential skills.

Workplace literacy providers

Workplace educators and providers include:

• public (school boards, colleges)
• non-profit organizations
• private consultants.

Workplace literacy providers have developed practitioner training, principles, process, resources and tools for workforce and workplace literacy. They have developed, facilitated and evaluated programs and other initiatives around clear language and integrating literacy.

Other organizations

Sector councils [6]

Sector councils have sponsored specific projects and initiatives in their sector.

Provincial literacy coalitions and national literacy organizations

Literacy organizations have promoted awareness, conducted research, developed tools, offered training and brought partners together. Their involvement in workforce and workplace literacy varies across the country from very little to high involvement.

Training, employment and education organizations

Training and education organizations have sponsored specific projects of interest to their members or clients.

Academics and researchers [7]

There are few academics and researchers in Canada who focus on workplace literacy. Those who do conduct and promote research and other products representing a variety of key areas and perspectives.

Models of delivery

Good practice principles

In 2002, Mary Ellen Belfiore analyzed principles of good practice statements in workplace education in Canada, United States, Britain, and Australia. She notes that these principles give direction to all the work that happens in planning and carrying out workplace literacy programs. She found that these principles were fairly consistent after two decades of work. The principles were:

• voluntary participation in programs
• confidentiality in all needs assessments both individual and organizational and evaluations
• the need to conduct an organizational needs assessment [8]
• customization of learning materials and curriculum
• the need to link learning to other training and education
• the importance of evaluations and goals set by all partners
• the workplace educator as a partner.

Other principles identified in the majority of statements were:

• the need for a project team or joint committee to guide the planning process
• equity in the partnerships. [9]

Similarly, The Conference Board of Canada also identifies key success factors. These factors include:

• creating a learning environment with support starting at the top
• planning first
• inclusive decision-making
• realistic evaluation
• the best instructor, delivery and curriculum mix. [10]

Partnership model of excellence

The Canadian Association of Municipal Administrators (CAMA) Literate Cities project is a national project which began in the early 1990s. CAMA works with municipal stakeholder committees that are setting up workplace literacy programs. Partners on workplace committees are union and management representatives as well as educational providers, and sometimes program participants and government representatives.

CAMA’s current literacy project’s objectives are to:

• raise awareness of municipal workplace literacy
• build commitment to municipal workplace learning
• establish links and partnerships. [11]

To fulfil this objective, the project helps with the development of new workplace literacy programs, offers workshops, forums and other events, develops tools, and does research.

The partnership model that the CAMA Literacy Project uses can be defined as one that involves municipal managers, union representatives, and community representatives nationally, provincially, and locally in all of its work. CAMA promotes this partnership approach in all of its products, events, and projects. There are 14 committees that oversee CAMA’s work. Committees generally have representation from municipal management, CUPE, and community partners.

Municipal managers, CUPE representatives, and community partners identified common impacts of this model in CAMA’s 2006 evaluation. These impacts were focused on broader opportunities for workplace-learning programs, for raising the profile of municipal workplace learning, and promotion because of the joint labour management partnership. Another impact is knowing what will work or not in a community because of the input of community partners. Partners said that this model means more awareness of municipal learning, more workplace literacy programs, and easier partnership development, and more sharing or resources.

The impact of the CAMA partnership is that it is a powerful example of how to establish, build, and strengthen partnerships as well as how to build new partnerships. Through strong partnerships there is increased awareness of different viewpoints around municipal workplace learning and increased commitment to workplace learning. All partners—management, labour and the community—benefit from these partnerships. It is clear that the CAMA partnership model strengthens the work of the organizations of those already in the partnership. At the same time, there is a ripple effect, with the current members of the partnership facilitating the growth of new partners and new workplace learning initiatives. [12]

Delivery models

Programs may be offered jointly by management and unions, by the employer alone, or by the union alone. An examination of case studies and write-ups of workplace literacy programs shows that the most common model is that of the small group with an instructor or teacher. Sometimes an instructor works with peer trainers or the peer trainers (co-workers) are the facilitators. Other models use the learning centre approach. In this case, employees can get help on a drop-in basis with an instructor available some of the time. In other cases, literacy and basic skills may be integrated into a content- or trades-training program or even an organization. Clear language writing for employers and unions is also part of the workplace literacy picture.

Programs tend to be cost-shared with all partners contributing. For example, many programs are offered on a 50/50 time split. Employers may contribute workers’ time, planning time, and space as well as dollars for an instructor. Unions may make in-kind contributions. Classes may be offered once or twice a week, or in a workshop style. In provinces that have a workplace literacy policy, government may contribute to the cost of an organizational needs assessment and some delivery. Policies will vary. There has been no documentation or indication of one model being better than another. There is evidence of principles of good practice to be followed for best results, regardless of which model is used such as joint development of a program, conducting an organizational needs assessment, voluntary participation and confidentiality of individual assessments and evaluations. Generally, workplace literacy programs have been voluntary and open to those workers who wish to take them. Most individual assessments have been confidential and instructor based. [13]

One assessment that has been developed is the Test of Workplace Essential Skills (TOWES). The TOWES is described on its web site as ‘an effective assessment that uses authentic workplace documents to accurately measure three essential skills that are needed for safe and productive employment: Reading Text, Document Use, and Numeracy’. [14]

According to the TOWES Web site:

However, labour has expressed concerns about TOWES. In the Canadian Labour Congress report on essential skills, it is reported:

The mini cases that follow will provide some examples of the kinds of workplace literacy programs offered in Canada.

Case 1: Canadian Union of Public Employees (CUPE) Local 5050 in partnership with the Cape Breton Regional School Board

Location: Cape Breton, Nova Scotia

Description of organization:

1400 CUPE members work at 65 sites across Cape Breton in a variety of jobs.

Model of Delivery:

Courses on Saturday mornings to accommodate different work sites and shifts.

The union formed a partnership with the employer. [17] The initiative is guided by a workplace education committee with five CUPE members, the board’s director of human resources, and a field development coordinator from the Nova Scotia’s Department of Education. In 2003, the committee surveyed union members and found that people wanted to get a high school diploma and learn computers. The committee offered basic computer and a twenty-week Essential Skills Course to start. Two more computer courses were offered. More courses are planned.

Two CUPE members have taken a training program to be peer-learning guides. Peer learning guides work with the instructor and program participants.

Impacts include:

• greater self-confidence
• participants are passing courses (high school equivalency)
• increased opportunities to move into different jobs
• participants can use their computers
• participants can help their children with their homework
• participants are more open to union involvement. [18]

Case 2: Cavendish Farms

Location: Summerside, Prince Edward Island

2005 Conference Board Award of Excellence Winner

Description of company:

Cavendish Farms is the fourth largest producer of frozen potatoes products for a global market.

Number of employees:

850

Model of Delivery:

Learning Centre started in 2002

The Learning Centre offers a range of courses including literacy, numeracy, communication, computers, and a focus on trades. It is designed to meet individual learning needs. An instructor works with each employee to develop an individualized learning plan based on the learner’s goals. The Centre is also open to employee’s family members as well. The Centre was developed based on a needs assessment with employees. The development of skills benefits both workers and the employer. A certified instructor teaches general and job-specific courses. The Centre is perceived as safe and confidential. Employees can learn at their own pace.

Funding:

The company pays for staffing, classroom resources and day-to-day operational expenses. Employees learn on their own time and get reimbursed for 50% of their learning time. The program is free to employees and their family members. Other organizations like Workplace Education P.E.I. contributed the overall organizational needs assessment.

Impacts include:

• greater employee confidence and mutual respect
• increased opportunities for employees to advance
• increased completion of high school equivalencies and trades certification
• greater employee retention
• greater employee satisfaction and morale
• greater productivity
• better worker-management relations [19]>

Case 3: SkillPlan

Location: Vancouver, British Columbia

Description of organization:

SkillPlan is a joint-labour management organization of the British Columbia Construction Industry Skills Improvement Council.

Issue:

Workers who have a lot of experience in a trade, but have been reluctant to write a trades qualification exam. They are not use to taking standardized tests.

Model of Delivery:

Study Skills component in construction trades training

The study skills component focuses on dealing with pressure, managing time, reading complex material, and taking notes. There was a fixed time for study skills within carpenter trades qualification course. A basic skills instructor works with the group three times a week during the course.

Impacts include:

• greater success on the trade qualification exam
• workers learn study skills
• trades trainers see how to incorporate basic skills strategies into the trades course [20]

Case 4: CUPE 500 and the City of Winnipeg

Location: Winnipeg, Manitoba

Canadian Association of Municipal Administrators’ Award of Excellence winner several times

Description of organization:

Local 500 represents about 5000 fulltime, part-time, and seasonal inside and outside workers with the City of Winnipeg.

Model of Delivery: Essential Skills Program since 2000

“The program uses a broad definition of literacy to guide the program. Literacy is defined as "the ability to understand and employ printed information in our daily lives." The definition allows the program to meet the spectrum of needs ranging from basic skills to supporting advanced skills. The Essential Skills program has learners with limited formal education to those with University degrees. It proves that 'literacy issues' can exist in all segments of a workforce.” [21]

The Essential Skills Program offers a variety of courses throughout the calendar year. The courses focus on areas such as reading, writing, math, computers, and interview skills. The course offerings change each year to address the need of employees. The courses are instructor lead but trained peer trainers who are CUPE members also assist the instructors.

The program is coordinated by a working committee of City employees who are members of CUPE Local 500. The working committee is a sub-committee of the Joint Union/Management Committee on Education, Training, and Staff Development. The Joint Committee administers a $3 million education and training fund negotiated by the union with the employer.

Employees attend the program because they want to get their high school education, help their children, and get certification and new skills to apply for promotions. Employees take the courses on their own time. Careful planning is essential. Evaluations are used to determine the next year’s courses.

Funding:

The Essential Skills Program started with a budget of $150,000 for the first three years.

Impacts include:

• greater employee confidence
• increased opportunities for employees to advance
• increased completion of high school equivalencies and mandatory certification
• a culture of continuous learning — people moving on to other education
• more comfortable in approaching the union
• ability to help children and grandchildren

4.5 Employer perspectives

Lynette Plett documented employer perspectives on their experiences of workplace literacy in three provinces. This section highlights what she found out in each province.

Nova Scotia

Seven companies interviewed have offered literacy and basic skills programs. The companies hired outside instructors and all training was held on site. The majority pay employees for 50 % of their time. The Nova Scotia Department of Education, Workplace Education Initiative, has provided funding to all seven companies generally for initial needs assessment as well as all or part of the instructor’s salary. Companies are expected to pay a greater share of the instructor costs after initial programming. Companies contributions generally included employees’ time for the needs assessment, their wages, materials, part of the instructor salary and celebration costs. Unions contributed financial or in-kind costs. All the employers emphasized the importance of not only government funding but the expertise of the Department in helping then set up the program. The conditions for offering these programs included senior management support, valuing learning, and resources.

Québec

Eleven employers were interviewed in Québec who offered a range of programs including reading, writing and math, specialized certification, and French as a Second Language. Most were held at the workplace with the others off-site. Six companies held training after work hours but reimbursed employees’ wages 100% through government funding. The companies indicated that government funding was key. Top conditions for offering programs included management support, government funds, and benefits to the company.

Ontario

Three of seven employer representatives had offered workplace formal literacy programs. None had received government funding but three had worked with regional literacy networks funded by the government. Conditions for offering workplace literacy training were: commitment from senior management, resources, community partnerships, and support from employees. The interviews indicated that employers are less likely to offer workplace literacy training without government funding and support. Employers wish to see a funding program for workplace literacy. [22]

Plett’s report makes recommendations to increase employer support for workplace literacy training. These recommendations focus on the need for the federal government to develop an action plan for workplace literacy training with appropriate partners. The action plan should include:

• financial incentives for employers ( such as wage subsidies, tax credits, payroll levy, funding for some delivery costs)
• services to support employers ( such as referrals—providers and resources and the program planning process)
• promotion of workplace literacy to employers
• funding non-profit organizations and other partners to provide support to employers

Practitioner capacity-building

In the 1990s there were a lot of professional development opportunities available across Canada for workplace educators. Many of these professional development opportunities tended to be institutes and programs that were offered on a one-time or on an as-needed basis. They tended to be a week or two weeks long. Margerit Roger found that there were two groups involved in wanting professional development—those wanting to move into workplace literacy and those who had been in the work for some time. Two labour-based programs for peer trainers were offered on an ongoing basis. Roger found that programs were offered at an introductory level and focused on general awareness and skills development in marketing, needs assessment, and teaching. There were few advanced programs and many had no built-in sustainability. Many of the professional development opportunities documented by Roger no longer exist. [23]

The report from a workplace practitioner’s forum in 1999 concluded that there was no one way to offer professional development because of the diversity of models in practice across the country. Professional development also needs to respond to different level of experience and be both formal and informal. Next, participants recognized that the diversity of the field—while serving as a strength.

Participants felt that because of these differences there should not be an attempt to have national competencies and package the work of a practitioner into nice, neat competencies. They wondered who would set and monitor such a strategy. They thought that formal recognition could be given to training initiatives rather than national performance measures. However, they were interested in general best practices. ‘Networking, mentoring and information sharing were seen as vital elements of professional development.’ [24]

In her conversation with seasoned and experienced workplace educators, Folinsbee found that the role of practitioner was a multi-faceted one and certainly more than an instructor. People in the conversation stressed both their life experience, transferable skills, and academic training as important in preparing them to do the work. They emphasized that there is no one course to prepare for it. They also underlined the complexity of serving the needs of all partners—learners, workers, managers, and others. These workplace educators said they continue their professional development through experience.

Collectively, they indicated that practitioners need the following knowledge, skills and abilities:

• knowledge: principles of adult education, for teaching reading and writing, and business and labour trends
• abilities: respect for people and their work, intercultural abilities, flexibility and creativity
• skills: instructional skills for workplace literacy, planning and analysis skills, advocacy [25]

Geraci, in her review of workplace educator professional development, reports that the role of a workplace educator is complex with many components and that professional development can mean the difference between success and failure. She reports that a DACUM [26] process for the role of workplace educator was conducted in 2001. The DACUM captures skills and abilities beyond introductory training and could be used to design more advanced training. Overall, content of practitioner training tends to include adult education principles, understanding the workplace, and planning and implementing a workplace literacy initiative. While many professional development programs give certificates, a certification process was rare. Nova Scotia was the only province found with a formal certification process. Instructors in Nova Scotia wanted credentials and to see workplace literacy education as a recognized profession. In terms of accreditation, the University of Winnipeg offered a half credit at two summer institutes on practitioner development. [27]

Geraci concluded that sustainability was an issue in workplace educator professional development and that there was no professional development path except in Nova Scotia. She concluded from the review of literature that a path would be desirable.

Interestingly, one of the challenges of the Workplace Education Manitoba Steering Committee (WEMSC) was that it was extremely difficult to maintain a bank of practitioners and consultants. One reason is that not everyone is suited for this work and another is that the work tends to be contract and part time. In addition, some people are only comfortable with parts of the workplace education process. WEMSC found that practitioners would develop their expertise and then get full-time jobs in other organizations. [28]

There is nothing in the literature about future planned development for practitioner development for workplace literacy. This is not an area identified in the current federal government funding RFP. [29]

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