Publication:Navy Engineering Bulletin March 2006/Lateral Entry Technicians in the Royal Australian Navy

There have been a number of initiatives to try and correct these shortfalls in personnel. Most recently the RAN introduced an accelerated promotion policy for sailors and a number of monetary retention benefits. This allows sailors with exceptional skills and expertise to be promoted to a higher rank than their seniority would normally allow.^[2] Retention benefits for ET and MT categories are designed to recognise technical sailor skill levels and retain them beyond their contracted six years.^[3]

The Direct Entry Tradesman (DET) scheme was a lateral entry scheme allowing skilled tradespeople from industry to enter the RAN and after brief training would enter the fleet as Petty Officers (PO).^[4] This scheme was commonly termed the '90 Day Wonder' scheme, after the short military training period. Lateral entry of technical sailors is currently permitted in the RAN via the Qualified Entry Sailor - Technician (QES-T) scheme.^[5] QES-T allows people to enter the RAN with the seniority of an Able Seaman (AB) after going through the normal Recruit School training program.

Scope.

This paper will discuss current shortage levels of POMT and POET positions within the RAN and possible reasons for these shortages. Previous and current lateral entry schemes will be compared against each other and those used overseas. Retention initiatives currently employed by the RAN will also be discussed.

AIM

The aim of this paper is to investigate whether a lateral entry scheme such as the DET scheme would adequately address the critical deficiencies in the categories of POMT and POET.

BACKGROUND Current Shortages of Technical Sailors.

As of 1 Aug 05, the MT category was declared as critical, with 268 personnel underbourne across all ranks and the ET category declared as perilous, with 587 personnel underbourne across all ranks. ^[1]

Figure 1 shows the biggest shortfall for the MT's is with the Able Seaman Marine Technician (ABMT).^[6] The most critical ranks in order are ABMT which is 18% underbourne, POMT 14% percent underbourne and Leading Seaman Marine Technician (LSMT) 6% underbourne.^[7]

In contrast to the MT category, the ET category is at perilous levels; figure 2 illustrates that POET's are 42% underbourne, Leading Seaman Electronics Technician's (LSET) 40 % underbourne and Able Seaman Electronics Technician's (ABET) 52% underbourne.

The above data highlights an alarming trend with AB in both categories; however, these figures can be removed from the overall picture if it is considered there will always be AB technicians coming through the training pipeline. This assumption is dependant upon recruiting targets being met.

FIGURE 1: CURRENT MT CATEGORY SUPPLY AND SHORTFALL.^[8]

FIGURE 2: CURRENT ET CATEGORY SUPPLY AND SHORTFALL.^[9]

Despite the fact that the rank of Leading Seaman (LS) for the two categories is facing its own personnel deficiencies, the sheer lack of senior sailors, particularly PO's in the technical streams is far more concerning. With the current cycle of AB leaving the RAN, there is little scope to grow LS and PO from the ranks and an alternative for creating LS and PO maintainers must be found.

Whilst rapid promotion and retention benefits have been offered to boost senior sailor numbers and retain juniors, alternatives must be explored to sustain the technical workforce.

Previous Lateral Entry Schemes.

Previously within the RAN one of the key lateral entry schemes implemented was the DET scheme. This scheme began around the Second World War (WWII), but came to prominence in the 1970's where it became colloquially known as the '90 Day Wonder' scheme. Prior to entry all applicants had to undergo a skill at hand assessment or trade test to demonstrate that they possessed the requisite practical skills. ^[4]

Entrants into this scheme joined the RAN as recruits wearing PO's uniforms without rank or rate badges and were promoted to PO on completion of recruit training. As recruits potential PO's were taught the necessary military skills, and went on to complete relevant equipment specific application courses before posting to sea. While at sea the DET's undertook on the job training until the skill and knowledge were obtained to undertake the roles and responsibilities of a PO at sea.

Current Lateral Entry Schemes in the RAN.

The current lateral entry scheme within the RAN is known as the Qualified Entry Sailor (QES) scheme, and is open to cooks, dental assistants, musicians and technicians. Technicians join the RAN through QES-T.^[10] All qualified entry recruits undergo basic training for 11 weeks regardless of category. The course indoctrinates new entrants in drill, RAN customs and teaches them vital skills for survival at sea and basic seamanship, sufficient to go to sea on RAN ships.

After the initial 11 weeks QEST sailors progress to the Initial Technical Training (ITT) Facility to undergo training in modules for which they were not granted Recognition of Prior Learning (RPL). After completing all necessary training QES-T sailors are posted to sea and given the rank of AB with seniority of one year.^[5]

Foreign Lateral Entry Schemes.

Canada and the United States (US) are two countries that employ lateral entry within their defence forces. The US employs it within their Army, Coast Guard (USCG) and Navy (USN). Additionally, the US employs lateral entry in the civil sector, specifically within Police Departments. The Canadian Armed Forces (CAF) utilise lateral entry across all services.^[11]

COMPETITION FOR RAN SAILORS

Skills shortage.

Currently the RAN is competing with the civil workforce for technically skilled personnel. Studies indicate that within the civil workforce there is a serious lack of skilled people. The National and State Skills Shortage List of 2004 indicates trades as a major area where personnel are lacking.^[12] Some of the key shortages of tradespeople effecting the technical categories in the RAN include; electricians, mechanics, metal fitters, machinists, electronic instrument and equipment technicians.

There are several factors creating the skills shortage in Australia currently, these include; economic factors, technological change, changes in sources of skilled labour, labour mobility, wastage from the trade and an aging workforce.^[13]

Economic Factors.

Influencing Australia's skilled workforce are global competition and the need to re-shape our workforce to accommodate the international market and changing cycles of manufacturing. As a nation, Australia is no longer competing in our own market but, must also compete with overseas companies for skilled tradespeople.Cite error: Invalid <ref> tag; refs with no name must have content

Technological Change.

With the emergence of new technologies, many trades are becoming redundant or obsolete; consequently, demand for technicians trained in leading edge technologies, such as those within the RAN, are in high demand.

Changes in Sources of Skilled Labour.

Large companies are utilising contractors as a labour solution. These large companies are no longer training their own technical workforce and the pool of qualified tradespeople is diminishing. This is evident when examining the major companies in the Australian defence industry, where a high percentage of their workforce is derived from former service personnel.

Labour Mobility.

People today are actively chasing better pay and conditions and in many cases are prepared to travel to obtain these benefits. As a direct outcome, a highly transient population of skilled tradespeople has been created producing shortages in specific geographic areas or sectors of the technical workforce.Cite error: Invalid <ref> tag; refs with no name must have content

Wastage from Trade.

Wastage rates are now higher than historical averages as people are changing their jobs more often or up-skilling to take on higher positions, such as Engineers and Managers, creating further personnel deficiencies within the civil workforce.Cite error: Invalid <ref> tag; refs with no name must have content

Aging Workforce.

More than 37% of the people working in engineering trades are 40 years old or over.

With the onset retirement, for members of this aging workforce, a further skills shortage is created. This apparent gap will widen and these deficiencies must be filled by enticing younger members of the Australian population into trades.Cite error: Invalid <ref> tag; refs with no name must have content

As a result of skills shortage in the civilian workforce, the RAN are effectively training up personnel with technical skills and setting them up for higher paid jobs, where they are not required to go to sea. Conversely, technological change, labour mobility and wastage from trade create potential candidates that could be recruited for lateral entry into the RAN if benefits were more attractive than the civil workforce.

LATERAL ENTRY IN THE RAN

Lateral Entry.

When examining the civilian workforce it is evident that the structure is very similar to that of the RAN rank structure. Table 1 demonstrates how the civilian structure equates to the RAN.

TABLE 1: CIVILIAN EQUIVALENT TO RAN RANK STRUCTURE.

^[14]

The use of lateral entry then is not difficult. The main difference is military training, which is absent in the civilian workforce. The RAN can bring in workers from the civilian workforce, provide them with military training and align their skills to RAN technologies allowing them to work effectively in the RAN.

The alignment of skills for potential ET sailors is simple as their civilian training is very similar to that in the RAN. However, for MT's the backgrounds in the civilian workforce vary greatly and hence alignment will be more difficult.^[15] In the past the DET scheme was used and today QES-T is utilised.

Direct Entry Tradesman.

The DET scheme is not new to the RAN, and it was utilised as far back as WWII to attract lateral entrants at times where the RAN was struggling to retain technically skilled sailors, much as it is now. DET entrants entered the RAN wearing a PO's uniform without rank or rate badges and were promoted to PO on completion of the recruitment component albeit minus a rate badge.

Prior to being selected DET recruits were required to undergo a six day trade test to ensure currency and applicability of their trades in the RAN. If they passed their trade test recruits would enter 90 days of recruit training, where they would train alongside general entry recruits and were treated as any other recruit, the only difference being uniform worn.^[16]

After completing initial training DET's wore their rate of specialisation and were afforded the privileges of a senior sailor. In comparison a sailor progressing to the rank of PO would typically take 8-12 years and this disparity of timeframes generated much animosity between the two groups.

Following initial training DET's were required to complete rank specific training including PO's management and the Instructional Technique (IT) courses. On completion they joined HMAS NIRIMBA to undertake five months of RAN trade specific training. Once all ashore training was completed DET's were posted to sea to complete on the job operator training identical to their fellow technical sailors. The fellow PO's at sea were more accepting of the DET's, due to the fact they were able to demonstrate their skills; however, considerate pressure was placed on these sailors to attain operator qualifications and begin undertaking roles as senior sailors.Cite error: Invalid <ref> tag; refs with no name must have content

Today the training structure for technical sailors is different and work tends to be contracted out and the requirement for recruiting DET is somewhat different. No longer is the need for so called 'black trades', such as Boilermakers, and in many cases DET's became disgruntled that they no longer could apply their own trades.Cite error: Invalid <ref> tag; refs with no name must have content Currently the RAN recruits DET's through the QES-T program; however, by recruiting with this method the RAN misses the opportunity to recruit senior sailors.

QES-T and its Shortfalls.

Whilst QES-T allows the RAN to recruit personnel with technical experience, the program devalues these people by placing them through the same training continuum as general entry recruits embarking on technical careers in the RAN. The only recognition offered to QES-T personnel is the RPL offered for ITT modules and promotion to AB, with one year of seniority, following recruit training. In this way the RAN recognises the technical skills of QES-T sailors but not their maturity, leadership or management skills.

As discussed in this paper the RAN misses the opportunity to recruit senior sailors, which it so desperately needs. The RAN will be required to resolve these issues if the program is to become successful and develop the potential to address current shortages at the senior sailor level.

FOREIGN SCHEMES

Two other countries utilising lateral entry in their armed forces are Canada and the US. The US also uses lateral entry in their civilian sector with one such example being Police Departments.Cite error: Invalid <ref> tag; refs with no name must have content

Canadian Armed Forces Lateral Entry Program.

"The Canadian

Forces began implementation of a lateral entry program in 2002. The program targets 20 understrength Regular Force occupations and allows lateral entry at two points. Recruits can enter with a certificate or diploma equivalent to the completion of initial skill training, or they can enter with a civilian Vocational or Technical (VOTEC) qualification equivalent to advanced training in the occupation".Cite error: Invalid <ref> tag; refs with no name must have content The CAF also offers enlistment bonuses to lateral entry recruits. These bonuses vary in amount based upon occupation and skill levels. At the end of Jan 03 27% of the total number of recruits for the CAF were lateral entrants.Cite error: Invalid <ref> tag; refs with no name must have content

Lateral entrants into the CAF are required to complete basic training; however, they are not required to complete any further training in their occupational area. Initially there was some resistance to lateral entrants at the field level of operations; however, this was defused by motivation from senior military officers and high levels of competence shown by lateral entrants.

United States Coast Guard Lateral Entry.

Increased demands placed on the USCG since 11 Sep 01, have forced the United States Coast Guard (USCG) to focus itself on optimal manning and as such institutes a lateral entry program that focuses on skills aligned to their predicted shortfall. To accomplish this program the USCG is working with the National Skills Standard Board to develop entry standards that are both meaningful and relate to the civilian sector.

United States Navy Lateral Entry.

The USN has trialled many lateral entry programs. One of the most ambitious was the Lateral Entry Accessions Program (LEAP). This program was targeted at 13 specific trades with a critical shortage. Civilians joined the RAN with higher pay grades more commensurate with their skill and experience levels.Cite error: Invalid <ref> tag; refs with no name must have content>

The program for USN failed to produce sufficient numbers due to the job-knowledge test, which was reported as being exceptionally difficult to pass. As such the program was replaced by another called the Direct Procurement Enlistment Program (DPEP), which is similar to QES-T.Cite error: Invalid <ref> tag; refs with no name must have content

WHICH SCHEME BEST FITS THE RAN

In the current environment the RAN desperately requires senior technical sailors. Research suggests that QES-T cannot adequately solve the shortfalls. Based on foreign lateral entry program studies there are four main goals that need to be considered:

1. reducing training costs,
2. correcting personnel deficiencies,
3. expanding recruiting markets, and
4. avoid disrupting the general military culture.

The RAN's main goal with respect to technical category shortages is to address personnel deficiencies while avoiding disruption to general military culture. As a consequence our recruiting markets will widen and training costs reduced by the employment of tradespeople who already possess the requisite trade skills.

To ensure that these goals are achieved the RAN must decide on the features this program must have to support their goals. Program features can be categorised into four groups, these are:

1. categories which lateral entry will be permitted,
2. training requirements of lateral entrants and experience levels,
3. size and adaptability of the implementation, and
4. applicable incentive structures.

Lateral Entry Categories.

From the RAN's point of view the focus is on recruiting technical sailors that will enter MT and ET categories as PO's.

Training Requirements.

From a training and experience levels perspective there are three key issues:

1. Trade skills assessment: Before the RAN can accept lateral entrants recruiters must have a means by which to assess candidates for their trade skills. The DET scheme used a six day trade test to assess the applicant's ability and it is not unreasonable why the RAN could not implement this test again. The USCG worked with their National Skills Standard Board to develop entry standards for their lateral entrants. The RAN could achieve a similar outcome with the Australian National Training Authority (ANTA).
2. Initial military training: If a lateral entrant is to be of any use to the RAN they must be indoctrinated appropriately into military culture. Previously DET entered 90 days of training, with general entry recruits. This type of entry could be run again for another lateral entry scheme. Careful consideration whether to put lateral entrants through the recruit school program or develop their own specifically tailored course must also be made.
3. Further training for rank: To become senior sailors lateral entrants must achieve the prerequisites for the rank of PO. This includes non-job specific training and operator qualifications to align their training with RAN technologies where required.

Recruitment.

With the current workforce environment, the most difficult task presented is recruitment; however, while the skills shortage causes some negative issue, recruiters must focus on positive points that could be exploited. These include technological change, labour mobility and wastage from trade.

Where technological change occurs, people that possess older trades based around aged technology become redundant. These people are still skilled tradespeople and possess a wealth of knowledge and leadership abilities. Their trade skills would only need to be adapted to account for new technology. The RAN could target those tradesmen who drop out of the workforce due to technological change and train them up to current technologies.

Wastage from trades provides the RAN an opportunity to attract those people who leave their positions or wish to up skill to higher positions to come and work for the RAN. Therefore, the skills shortage provides a number of advantages that could be utilised by the RAN to build up numbers of senior technical sailors.

Labour mobility results where the workforce chases better pay and conditions. If the RAN was seen to offer this the potential to attract skilled tradesmen to the RAN is presented.

Incentive structure.

Recruiters will require an incentive structure to recruit and retain lateral entrants. The DET scheme required entrants to sign up for 12 years. This would naturally turn away a number of people who are uncertain about entry into the RAN. Current monetary bonuses are good incentives to join and stay in the organisation as well as lifestyle advantages. Recruiters can also highlight member benefits such as free medical and dental. Other incentives include can include cash bonuses or elevated pay rates. This has the potential to disrupt the general military culture, unless the bonuses are offered to all technical sailors.

One of the issues that DET's had with the RAN was the inability for them to practice their trade. With contracting, our technical sailors are now operators as opposed to maintainers who would affect machinery and equipment repairs. There is little that can be done about this and it must be realised that these people are now in higher paid jobs with leadership roles.

Many of the DET's stayed on past their required 12 years and often longer than 20 years.Cite error: Invalid <ref> tag; refs with no name must have content

One possible alternative is to utilise these lateral entrants in Fleet Intermediate Maintenance Activity (FIMA) units around the country, where they are directly able to apply their respective trades. The main benefit would be that the knowledge in the Skills Centres that all new Seaman (SMN) pass through prior to serving on a ship would be greatly enhanced. This would also help with issues of extended sea periods, which some sailors are unable to cope with.

CONCLUSION

This paper has demonstrated, there is a distinct shortage of technical sailors currently in the RAN, specifically MT and ET. This is having an enormous effect on the RAN and its ability to recover from this shortfall via the current means of recruitment is severely in doubt. This is not necessarily the fault of recruiting, but rather reflective of Australia's current market of tradespeople and associated intricacies of the market such as trade wastage and labour mobility.

Previously the RAN has embraced lateral entry schemes as a means of recovering from shortages of skilled technicians. Although the RAN utilises a lateral entry scheme in the form of QES-T it fails to address the critical areas of senior technical personnel.

Recent attempts by the RAN to retain sailors revolve around monetary bonuses and rapid promotion programs. Clearly an effective means by which sailors can be brought into higher ranks would save both time and money.

It has been shown that lateral entry schemes in foreign armed forces have been an effective means of filling personnel deficiencies.

RECOMMENDATIONS

On the basis of the information presented and discussed within the scope of this paper it is recommended that the RAN adopt the following actions to remedy current personnel deficiencies in the POET and POMT ranks.

1. The current QES-T scheme should be expanded to incorporate the ability to employ tradespeople of varying skill and experience levels as technicians between the ranks of AB through to PO.
2. Recruiting drives should be targeted toward the civilian technical workforce to bring in large numbers at a time. This will have a focus on the pay and conditions offered and present them in such a way that the civilian workforce cannot match them.
3. Recruits will then undergo a trade and leadership skills test, which will be developed in liaison with ANTA. This initial assessment period should be no longer than 14 days, at which stage they will be offered an equivalent rank and salary package based on trade and leadership skills as well as age. Signup periods will be the same as recruits (six years) and lateral entrants will be offered the same retention benefits to stay on past this minimum period.
4. Lateral entrants will then enter a tailored recruit program that builds on the current recruit school training but also includes rank specific training. Once the recruit component of their training is finished lateral entrants will be fast-tracked through ITT, undertaking the required modules. Attention must be paid to their knowledge levels such that they do not repeat training in skills they already possess.
5. After ITT the lateral entrants will consolidate their training and complete the required prerequisites for the rank awarded prior to being posted to sea to complete on the job training.

• D. CHATAKANANDA

CDR, RTN MEAC 37

• R. WICAKSONO

KAPT, TNI-AL MEAC 37

• B. DONOVAN

SBLT, RAN WEAC 43

• J. MILLAR

SBLT, RAN MEAC 37

November 2005

Footnotes

1. ↑ ^{1.0 1.1} Defence Personnel Executive, ADF Workforce Update - September, available on the internet, [cited 3 Oct 05], http://www.dpe.gov.au
2. ↑ DSCM, WCA/WHC/Z4P, 290645Z AUG 05
3. ↑ CN, Z4P/W4H/W4L, R 110645Z OCT 05
4. ↑ ^{4.0 4.1} Correspondence with LCDR R. Lee, 26 Sep 05 revealed general information about DET scheme
5. ↑ ^{5.0 5.1} Department of Defence 2005, ABR 10-Sailor Career Management Manual, Chapter 16, Annex J
6. ↑ Shortfall is calculated as the theoretical demand less the actual supply
7. ↑ Percentage underbourne is calculated as the shortfall divided by demand
8. ↑ Defence Personnel Executive, Navy Workforce Supply Forecast MT, available on the internet, [cited 23 Sep 05], http://www.dpe.gov.au
9. ↑ Defence Personnel Executive, Navy Workforce Supply Forecast ET, available on the internet, [cited 23 Sep 05], http://www.dpe.gov.au
10. ↑ Department of Defence, Defence Jobs - Qualified Entry Sailor, available on the internet, [cited 30 Sep 05], http:// www.defencejobs.gov.au
11. ↑ Levy, D. [et al], 2004, RAND report - Expanding Enlisted Lateral Entry, Options and Feasibility, National Defence Research Institute, available on the internet, [cited 15 Sep 05], http://www.rand.org
12. ↑ Department of Employment and Workplace Relations, 2004, National and States Skilled Shortage Lists Australia-2004, available on the internet, [cited 7 Sep 05], http://www. AustralianJobs@dewr.gov.au
13. ↑ Australian Industry Group, Engineering Working Group, Skills Shortages in Engineering
14. ↑ Discussion with CMDR C. Bourke on 23 Aug 05 revealed general information on lateral entry for the RAN
15. ↑ Discussion with Mr I. Hood on 20 Oct 05 revealed general information on QES-T
16. ↑ 10 Discussion with Mr F. Harrison on 12 Oct 05 revealed general information about the DET from the perspective of a DET

BIBLIOGRAPHY

• Australian Industry Group, Engineering Working Group, Skills Shortages in Engineering
• Defence Personnel Executive, [cited Sep 05], Fundamentals of Workforce Planning, Available from the internet: www.dpe.gov.au
• Defence Personnel Executive, [cited Sep 05], Navy Workforce Supply Forecast, Available from the internet: www.dpe.gov.au
• Department of Defence, [cited Aug 05], Defence Workforce Plan 2005 - 15
• Department of Defence, [cited Sep 05], Defence Jobs, Available from the internet: www.defencejobs.gov.au,
• Department of Employment and Workplace Relations, [cited Sep 05], National and State Skill Shortage Lists Australia - 2004, Available from the internet: www. dewr.gov.au
• Department of Defence, [cited Aug 05], RAN, ABR 10 - Sailors Career Management Manual
• Director Navy Workforce Management, [cited Aug 05], Navy Workforce Supply Management Plan 2004 - 2014
• Levy, D. [et al], 2004, Expanding Lateral Entry, Options and Feasibility, RAND Corporation, Arlington, Virginia
• Schindlmayr, T., 2003, [cited Aug 05], Defence Personnel Environment Scan Department of Defence

ACKNOWLEDGEMENTS

1. Email, LCDR R. Lee, 26 Sep 05
2. Meeting, CMDR C. Bourke, PM 23 Aug 05
3. Meeting, Mr I. Hood, PM 20 Oct 05
4. Meeting, Mr F. Harrison, PM 12 Oct 05
5. Telecon, Mr R. Allard, PM 11 Oct 05