The Artisan Recognition of Prior Learning (ARPL) model can help to address the rapid informalisation of the plumbing profession. At the same time, it is also a potential solution to the dire shortage of qualified plumbers in the country.
Importantly, the ARPL could drive the transformation of the formal plumbing industry. This is by absorbing skills from the informal industry, consisting mainly of previously disadvantaged people. It is imperative that the formal plumbing industry continues to strive to better reflect the demographics of the country. Bear in mind that the formal plumbing industry is still largely dominated by white males of between the ages of 35 and 39. Therefore, Broad-Based Black Economic Empowerment (B-BBEE) [Broad-Based Black Economic Empowerment – The Department of Trade Industry and Competition (thedtic.gov.za)] remains key in this industry. However, it is important that transformation is a theme that is integrated with the drive to improve professional standards. It should not be treated separately. This is to avoid skills development and training to merely becoming a “tick-box” exercise to improve B-BBEE scorecards. Unfortunately, this is a practice that has been observed in many other industries which undermines the real purpose of skills development and training and transformation.
Trade & Industrial Policy Strategies (TIPS) [TIPS – Home] recently undertook an in-depth study of the ARPL programme in the plumbing industry. The study notes the limitations of the ARPL and hurdles in the way of its successful implementation. It also proposes improvements that can be implemented to ensure the success of the ARPL programme.
Invested in the ARPL programme
The Institute of Plumbing South Africa (IOPSA) and the Plumbing Industry Registration Board (PIRB) are invested in the success of the ARPL programme.
They are, therefore, promoting the ARPL process against a plumbing occupational certificate. At the same time, the PIRB is working towards establishing a process that will assist candidates better navigate the ARPL system. This is being done in collaboration with other industry bodies and training providers.
Refer to IOPSA – Home and Plumbing (pirb.co.za) for more information on IOPSA and PIRB’s unique roles in the plumbing industry.
It is against this backdrop that IOPSA commissioned the research.
ARPL can strengthen plumbing
The ARPL can strengthen the plumbing industry, which fulfils a vital role in South African society. South Africa’s plumbing industry is responsible for delivering safe water and sanitation services for health, hygiene and wellbeing. This is in addition to ensuring efficient water use and waste management.
It is estimated that 89% of households in South Africa had access to drinking water, including piped or tap water off or on-site, in 2018. This is according to Statistics South Africa’s 2018 General Household Survey [General Household Survey, 2018 | Statistics South Africa (statssa.gov.za)]. Note that accessibility to drinking water exceeds the supply of the other basic services. Access to electricity was 84,7%, sanitation 83% and refuse removal services at home 66,4% in 2018.
Considering the importance of this industry, it has the potential to create many more secure and well-paying jobs that also provide good working conditions. This will help to address high levels of unemployment and rising inequality in the country. Six Charts Explain South Africa’s Inequality (imf.org) provides more reading on the extent of inequality in the country. Note that inequality in South Africa is currently the highest in the world. Meanwhile, the country continues to struggle with very high levels of unemployment, especially among young adults.
A vibrant and healthy plumbing industry will also support government’s strategy to grow the construction and manufacturing industries. This is part of state’s plan to halt rapid deindustrialisation and, in doing so, creating many jobs, especially for unemployed youth.
Moreover, it can increase the South African tax base by growing the number of participants in the formal plumbing industry.
ARPL addresses longstanding challenge
The ARPL addresses the longstanding challenge in the plumbing industry, namely the rapid rise of unqualified plumbers.
TIPS defines unqualified plumbers as those individuals who work in the industry, but do not have a formal qualification to do so. About 86,8% or 97 000 individuals who identify as being plumbers are unqualified. This number was rounded off to the nearest thousand. It includes individuals who have not completed matric and those who hold a National Senior Certificate. However, they have not studied to be plumbers.
Of the 112 000 workers in the plumbing industry in 2019 who were willing to disclose their education levels, 3 000 or 2,6% had received no schooling. About 50% had not completed their matric and only 33,9% were in possession of a National Senior Certificate. All these individuals were previously disadvantaged citizens and at least 40 years of age. Only 1% of these individuals had a bachelor’s degree and a post diploma. They were all indigenous South Africans aged between 40 and 49.
The 86,3% of workers in the plumbing industry without a post-matric qualification are, therefore, classified as unqualified plumbers. Meanwhile, the 9 000 or 8% who hold a qualification are, thus, qualified plumbers.
APRL targeted an informal industry
The ARPL is specifically targeted at the informal plumbing industry.
This industry comprises individuals who are qualified to work as plumbers and those who are not. Some have previous experience working as plumbers and others have never installed, repaired or maintained plumbing systems.
However, many participants in the formal industry also employ these individuals. They recruit them via various casual methods. These individuals can be found outside retail outlets displaying their services on placards; through word of mouth; or referrals. It is also common practice for participants in the informal sector to approach potential employers in the informal sector directly for a job. This practice is also commonly known as “walk ins”.
Once they have acquired the experience, many of these individuals leave their jobs to work in the informal industry. Some people only work in the informal industry on a part-time basis. They take on private jobs in the informal market to supplement their incomes. This is while they work for companies in the formal industry.
ARPL can develop industry
The ARPL can develop a sustainable industry by significantly raising the skills of individuals who provide plumbing services.
Unqualified plumbers drive down the fees charged for professional plumbing services to unsustainable levels. This, in turn, also threatens the livelihood of individuals who operate in the informal industry. Therefore, there are no winners on either side.
Moreover, it negatively impacts the overall quality of workmanship of the industry. Substandard workmanship causes pipe leaks or bursts, resulting in financial damage. This is due to water losses; damage to property; and the need to replace faulty plumbing installations. Substandard workmanship can also place the health and safety of occupants of buildings and entire communities at risk. This can result in the contamination of clean drinking water; spread of disease; and scalding, as well as explosions in extenuating circumstances. Systems that do not comply with standards also place extraordinary strain on municipal system. In extenuating circumstances, they can even damage these assets.
It would be impossible for unqualified plumbers to supply their services at cut-throat rates if they complied with regulations and national standards. This comes at a cost which needs to be incorporated into the overall price of the plumbing service. Custodians of these standards and regulations include the South African Bureau of Standards [SABS] and the Water Research Commission [Water Research Commission (wrc.org.za)]. This is in addition to the municipalities and educational institutions, such as the Construction Education and Training Authority [Home | CETA]. Certainly, IOPSA and PIRB are also keepers of plumbing systems and procedures.
Substandard plumbing installations also exacerbate the severe water and sanitation crises with which the country is currently grappling. This is considering that poorly installed, maintained and repaired plumbing systems are inefficient. They also place unnecessary pressure on already-strained municipal systems.
ARPL facilitates professional development
Ultimately, the ARPL also facilitates professional development.
Unqualified plumbers are unable to acquire new or hone existing skills. They, therefore, cannot respond to new trends, developments and needs to ensure the survival of or grow their businesses. A case in point is the increased demand for “green plumbing” solutions as South Africans become more environmentally conscious. This while also reducing their reliance on extremely strained municipal resources, including energy and water. Municipalities are increasingly struggling to supply these resources. Therefore, property owners are forced to look for feasible alternatives. Many enterprising plumbers have diversified into this specialised field by equipping themselves with the relevant skills and technologies. This has also ensured survival as traditional plumbing markets continue to shrink for various reasons.
Importantly, the ARPL model can integrate individuals who work as plumbers in the informal sector into the formal industry. The formal industry offers career mobility. Qualified plumbers working in the formal sector also have a higher earning potential than their counterparts in the informal sector. Plumbers’ salaries are influenced by various factors, not least of which are years of experience and qualifications. Meanwhile, self-employed plumbers within the formal sector can earn more than those individuals who work for a company.
This is one of the ways in which the ARPL can play an important role in transformation.
ARPL to raise plumbing standards
The ARPL will also help to raise plumbing standards in the township areas. This is a significant market for these operators because many individuals living in these areas cannot afford professional plumbing services. Meanwhile, the thriving township micro development industry also makes extensive use of the services of the informal plumbing sector. The township market has been notoriously under serviced by the formal industry, including plumbing merchants, to date.
The township market also supports those individuals who do not have the education to work in the formal plumbing industry. They, therefore, have no other choice to work in this industry to earn a livelihood. If given the chance, many would prefer to work in the formal plumbing industry with its numerous benefits.
Because this market is not regulated, many of these enterprises are not registered and do not comply with plumbing regulations and standards. Again, this places the health and safety of occupants and entire communities at risk. This is over-and-above the financial losses that can occur due to damage to property and having to replace or repair a faulty installation. These installations also place unnecessary pressure on municipal assets and compound the water and sanitation crises.
ARPL can stop increasing informalisation
The ARPL can stop increasing informalisation of the plumbing industry.
There has been a marked decline of formal plumbing companies over the years while the number of informal plumbing businesses continues to grow.
In 2018, the informal sector accounted for about 87,8% of plumbers. This is compared to 10,5% of self-employment enterprises that operated in the formal plumbing industry in 2019. Of the 18 000 self-employed enterprises operating in 2019, 6 000 were own-account workers. The balance consisted of businesses that employed one or more people.
There were significantly more of these businesses in 2016. At the time, 36,3% of participants in the formal industry consisted of self-employment enterprises.
The decline of the formal sector from about 2016 can be attributed to many factors. Among these is the exceptionally poor performance of the South African construction industry. This is on the back of a noticeable decline in municipal capacity and willingness to enforce the requirements of their by-laws. These controls are in place to help to regulate and safeguard an important industry with the ultimate beneficiary being the consumer.
Certainly, the COVID-19 pandemic also had a profound negative impact on industry. Due to financial constraints, many customers postponed or outright cancelled the installation, repair and maintenance of plumbing systems. Many disillusioned workers, therefore, left the industry to join the informal sector. In extenuating circumstances, a number of individuals exited the industry completely, aggravating the skills crisis. The industry is still recovering from the impact of the COVID-19 pandemic.
ARPL provides path to qualification
The ARPL provides an alternative path to a qualification. For many individuals, it is the first step in a journey of lifelong learning that will enable them to improve their circumstances.
To operate legally, a plumber requires an occupational certification. This is based on the Quality Council for Trades and Occupations (QCTO) [QCTO Home of skills assurance] assessment and qualification criteria.
Conventionally, individuals who hold a National Senior Certificate at a National Qualifications Framework Level will complete a plumbing apprenticeship. They will then write a trade test to qualify as a plumber. Refer to For learners (qcto.org.za) for more reading on the apprenticeship process.
ARPL a driver of redress
The ARPL can be an important driver of redress. This is considering that it deliberately targets those individuals who were deprived of an education.
Many of the hurdles in the way of previously disadvantaged individuals gaining a qualification in plumbing are systematic in nature. These challenges are the remnants of a past regime that created imbalances in the artisan system. Skills development and training opportunities, particularly for trade careers, were denied to indigenous South Africans. This has resulted in a stubborn legacy of poor education and skills under development in black and coloured communities.
A skewed education system is also preventing many young adults from pursuing a career in the formal plumbing industry. Without a matric certificate with maths or science as subjects, they cannot enrol for a plumbing course at select Technical Vocational Education and Training (TVET) colleges. This 13-week course was developed by the National Business Initiative in partnership with IOPSA to help address the shortage of qualified plumbers. It is the first step in a clearly defined route towards a plumbing qualification.
Young adults also need a matric to enrol for plumbing learnerships.
Alternatives to the ARPL need to be found for young adults who want to become plumbers. This is considering that many of these individuals are not eligible to undergo the ARPL because of a lack experience and training.
Many also fail their trade test because of various other reasons. These include the misalignment of theory taught and actual industry requirements and inadequate training provided by TVET colleges. This is in addition to ill preparation and incompetency of the candidates.
The existing ARPL programme
Many individuals have also struggled to obtain a plumbing qualification through the existing ARPL programme. Since 2016, the QCTO has expected candidates to evaluate themselves or be interviewed to assess their readiness to write a trade test. These criteria for occupational qualifications were introduced in 2016 and replaced the old “walk-in” system. The process is significantly more challenging to pass, and it is costlier than the latter. Many candidates have, thus, failed the process and others have become disillusioned with the process.
The Swiss-South African Initiative [Home (ssaci.org.za)] assessed the pass rate of the two different routes to artisanship in 2017. Pass rates were the highest in apprenticeship programmes. In 2014/2015, 45% of pass rates were from apprenticeships and only 25% from ARPL programmes. Meanwhile, learnerships only yielded a 12% pass rate.
ARPL develops pool of artisans
The ARPL also has the potential to develop a large pool of artisans from which the formal industry can draw. This will help to develop the profession and economy at large.
The DHET [Department of Higher Education and Training (dhet.gov.za)] reports that 30 000 qualified artisans are needed a year to address the skills shortage. This is impeding economic growth. Refer to this document for more reading on the matter: Artisan ToR and Guidelines- Artisan Development 9 August 2020.pdf (dhet.gov.za).
A large pool of qualified plumbers will also be able to replace the many tradespeople working in the profession who are approaching retirement. The average age of artisans in the country is at least 55 years. When licensed business owners retire, they need to pass the business on to tradespeople who are allowed to issue a Certificate of Compliance. Only qualified plumbers are allowed to issue this document that serves as proof that workmanship meets the required standards. Without more qualified plumbers, the continuity of successful plumbing businesses is at risk.
The ARPL programme
The ARPL programme is a policy instrument that enables a large pool of unqualified but experienced and skilled individuals to attain artisan certification. Refer to this document for more information on the ARPL process: Artisan Recognition of Prior Learning (dhet.gov.za).
Notably, it acknowledges the value of informal experience and learning outside of formal education and training.
The ARPL process starts with an evaluation of the candidates’ skills and experience to determine if they are ready to write a trade test. If limitations are identified in candidates’ skills levels, they must complete gap training before they write a trade test. A Portfolio of Evidence is compiled on behalf of candidates who have completed their training. This is used to recommend them for trade testing.
Section 26D (5) of the Skills Development Act No. 97 of 1998 has successfully addressed past discrimination against ARPL artisans. Refer to Section 26D (5) of the Act: Skills Development Act 97 of 1998 | South African Government (www.gov.za). It introduced a certification system that does not distinguish between artisans who obtained their qualifications from the conventional process or the ARPL programme.
ARPL programme faces challenges
However, the ARPL programme faces challenges. These have thwarted the success of the programme since it was implemented in 1994. They mainly relate to the costs and the time it takes to undergo the ARPL process.
Plumbers and employers bear the cost of the ARPL process. It costs between R15 000 and R28 000 per candidate participating in the programme. This is a relatively high cost for low- to middle-income earners. Bear in mind that a qualified plumber earns R5 245 a month according to Statistics South Africa. According to Payscale [Payscale – Salary Comparison, Salary Survey, Search Wages], the monthly wage of an unqualified plumber is R8 160 a month.
The second major impediment is the extensive process involved before candidates can write their trade tests to obtain a qualification. This is time that employees could rather be working. Meanwhile, own-account workers will simply not earn any revenue while they are undergoing the ARPL process. This is, thus, simply not feasible for many individuals.
Potential drivers of ARPL
Employers are major potential drivers of the ARPL. However, they need to be incentivised to invest in the ARPL process for their employees. This is considering that many employers remain reluctant to invest in skills development and training in general. Yet, they play an important role in improving companies’ competitive edge. This is by improving productivity, efficiency and accuracy, as well as health and safety levels of their workforce.
One of the reasons is that employers do not want to pay the higher salaries that qualified plumbers earn.
They also fear that their employees will leave them once they have qualified. This will result in replacement and training costs and additional competition in the industry.
ARPL not for all individuals
The ARPL is certainly not for all individuals. Some people prefer operating in the informal industry. They have intentionally carved a niche market for themselves that is not serviced by the formal plumbing industry.
Therefore, a solution may be to recognise or promote sub-specialisations in the plumbing industry. This would be an alternative to the ARPL programme, which some individuals may find overwhelming or discouraging.
A successful ARPL model
A successful ARPL is dependent upon many factors.
Employees need to be subsidised to participate in and employers incentivised to enrol their workers in the ARPL. This can be achieved through greater collaboration between all relevant stakeholders. They include the plumbing industry bodies and the DHET. This is in addition to the Sector Education and Training Authorities [Department of Higher Education and Training – SETAlinks (dhet.gov.za)]. Certainly, the National Artisan Moderation Body [National Artisan Moderation Body (dhet.gov.za)] should also be involved.
Alternative routes or bridging courses that offer certification and qualifications that are not a Red Seal QCTO qualification are also necessary. This will enable skilled individuals who fail the trade test in the formal market to also secure decent employment. This can be achieved via better cooperation between relevant stakeholders. These include the education and skills bodies, such as the TVETs and the QCTO [QCTO Home of skills assurance]. This is in addition to the DHET.
Meanwhile, IOPSA and PIRB will continue to encourage their members, especially those who employ people, to register their unqualified workers for the ARPL. This is by explaining the benefits of the ARPL programme to participants in the informal industry. Not having a plumbing qualification or qualified employees comes at a high cost.
