By the 1890s, factory methods had encouraged looseness or avoidance of apprenticeship contracts. The improver system, under which employers were not responsible for teaching, flourished. Youths grew up insufficiently skilled to command full tradesman’s pay, thus threatening adult jobs and wages. In 1896, following anti-sweating agitation, wages boards were established to determine minimum rates and maximum numbers of juveniles in certain seriously exploited trades. By 1900, this system was extended to other trades, but the minimum duration of apprenticeship contracts was set at only one year. Because employers resented limitation, wages boards in 1903 lost the power to fix the proportion of apprentices; but in compensation an apprentice was redefined as one bound to be taught for at least three years. Nevertheless, without adequate means of training, adequate definition of trade skills, or an adequate tribunal, the situation remained unsatisfactory. Trade classes were developed to supplement workshop experience, but they had little effect.
In 1907 a conference recommended that an Apprenticeship Commission take control of certain skilled trades and establish the numbers to be admitted as apprentices, their wages, and the goals and methods of their training, including technical education. Improvers would be excluded from those trades. Although wages boards gained power to prescribe indentures in 1909, and regained their limitation powers in 1910 when Bills to establish a Commission were presented in 1911 and 1912, both the form of the proposals and the antagonism of employers resulted in their rejection. A second conference in 1911 recommended that apprenticeship be left to the wages boards. Between 1911 and 1921, the Federal Arbitration Court improved apprenticeship conditions in some trades; the technical school system developed its capacity, especially in preparatory work; and a Repatriation Training Scheme adopted organisational machinery similar to that proposed in 1907.
Author's abstract.
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