Skills Active Aotearoa Sector Strategic Training Plan 2012-2015

outdoor recreation sector30 outdoor recreation sector31The review recommended that government adoptsthe following package of measures − a mix of regulatoryrequirements, industry initiatives and system improvements:• Introduce a registration scheme for the adventureand outdoor commercial sectors, with a requirementfor up-front and ongoing external safety audits ofoperators’ safety management provisions (to a levelcommensurate with the risk) and an obligation onoperators to keep their registration up to date• Partner with an industry-led entity to strengthen thesafety management framework for the sector• Develop a best practice guide for the sector• Evaluate the voluntary safety auditing schemes foradventure and outdoor commercial sector operationsto ensure they are fit for purpose• Investigate the development of a register ofgovernment-accredited adventure tourism-relatedsafety auditing schemes• Better inform operators about their currentresponsibilities• Undertake further work to determine whetherinstructors and guides should be required to holdqualifications and work only within the scope of theirqualifications for some activities• Collect better and more consistent information on thesector and improve its collation.It is likely that any auditing system will refer to industryrecognisedqualifications as one method of identifyingthe skills and knowledge required of staff involved inthe delivery of outdoor programmes. Where industryacceptedqualifications are not held by employees,audits are likely to focus on internal training andassessment as evidence of staff competence.As an outcome of the ATOC’s recommendations, DOL isinvestigating (using Outdoors NZ to carry out the work)whether qualifications should be mandatory for guiding/instructing certain outdoor activities. This is likely to leadto an increase in training and assessment as proof that allpractical steps are being taken to keep clients safe.Other factors include: • Increasing diversity of product and services:Traditionally, outdoor pursuits have included activitiessuch as bush walking, climbing and kayaking, butthere are now growing numbers of other outdoorrecreation activities such as mountain biking, surfingand whitewater boarding. It is likely that these willsupplement, rather than replace, ‘traditional’ activities• Time pressures: Increasing demand on people’s timeis thought to be a major factor behind reduction inclub membership numbers. An increase in casualinvolvement in shorter-duration activities is alsoexpected as a result. Pressure on time could lead toincreased uptake of shorter-duration commerciallyoffered activities in a controlled environment• Fluctuating demand from schools: There is someevidence of schools reducing their outdoor activitiesdue to risk management compliance concerns.Conversely, however, pressure to use qualified staff todeliver outdoor recreation may increase the demandon the commercial sector• Increased regulatory requirements and associatedcompliance costs: This may lead to an increase in thenumber of larger businesses, which are better able to handle the cost of managing risk and compliance• Costs of transport and an increase in environmentalawareness: These may lead to an increase inenvironment-focused, sustainable experiences, andinfluence the choice and location of activity• Increased involvement in multisport and disciplinespecificevents• Increased willingness to pay for leisure activities: Thismay lead to a shift towards more paid rather thanunpaid workers in the future• An aging population: This will affect the types ofoutdoor activities in which people participate, with anincreasing emphasis on activities related to health andfitness 15 .6.9 Barriers to trainingThe major barrier to training for the outdoor recreationsector has been identified as cost to the trainee andthe workplace, particularly the cost of covering seniorstaff while they are providing training and staff whoare being trained.The cost of external training and assessment is also abarrier, especially when linked to the low income of theworkforce, high staff turnover and the location and timingof external training and assessment events. Availabilityof assessors and timing of current workshop-basedassessments are also issues that were raised as barriers.6.10 QualificationsWith the increase in the numbers of people employedin outdoor recreation, and because of the requirementsof regulators such as DOL, there will be an increaseddemand for national qualifications.In general, nationally recognised qualifications areconsidered to be a useful tool to validate the competenceof outdoor leaders, especially in the areas of:• First aid• Risk management• Technical skills• Instructional skills• Decision-making.Industry training courses, such as those offered by theITO in a workplace setting and those offered by NZOIAthrough workshop assessment, are widely supportedfor these key competencies. However, not all nationalqualifications for outdoor recreation currently have theseelements in them.Some gaps in the outdoor qualification frameworkhave also been identified. These include mountain bikequalifications at higher levels, adventure-based learningor rope course qualifications, hunting qualificationsand safety auditing qualifications. However, industrydoes not want to see a proliferation of qualificationsand would like to see a rationalisation of the currentqualification schemes.The following three-tier system of qualifications in eachdiscipline is considered appropriate:• Activity leader• Instructor• Senior instructor.There is also strong support 16 for the introduction ofa low technical-skill level ‘supervisor’ qualificationthat could be used by those supervising groups ofpredominantly young people, in front country/low-riskenvironments (for example, teachers supervising lowlevelEducation Outside the Classroom (EOTC) activitiesand Scout/Guides taking groups in park situations).There is also strong support from industry for somesystem to demonstrate the ongoing current competencyof outdoor leaders, making the list of current andqualified individuals accessible to the public through aregistration database.6.11 The training and assessment landscapeThere are a large number of training and assessmentoptions in the outdoor recreation sector, ranging fromworkplace training and assessment with no externalvalidation through to training and assessment againstnationally recognised qualifications.Polytechnic and PTE programmes that offer nationallyrecognised qualifications are considered more valuablethan courses that do not lead to nationally recognisedqualifications. Polytechnic courses combined withpractical work placement are also more highly valued,as lack of experience in the outdoor sector washighlighted as a barrier to gaining employment.Industry would prefer one set of qualifications thateverybody understood to be the standard required,with flexible assessment methodologies that lowerbarriers to achieving.15 (Eschenfelder and Li, 2007)16 81% of respondent to the Outdoors New Zealand survey