1. Introduction

Australia is facing a critical shortage of building surveyors, placing significant pressure on the construction industry, local government, and private certification bodies. With growing development demands, an ageing workforce, and challenges in attracting new professionals, the ability to assess, approve, and inspect building work in a timely and compliant manner is becoming increasingly strained.

While traditional pathways into building surveying require tertiary education and formal accreditation, a practical and scalable solution could be to leverage the experience of skilled tradespeople—particularly carpenters and builders—through an enhanced Recognition of Prior Learning (RPL) framework. By modifying the Certificate III in Carpentry and Joinery to incorporate fundamental compliance and regulatory knowledge, the industry could create a structured pathway into building surveying roles, helping to alleviate workforce shortages while maintaining high professional standards.

2. Understanding the Building Surveyor Shortage

Recent research highlights a severe shortage of qualified building surveyors, particularly in local government and regional areas. The Building Inspectors and Building Surveyors Salary Survey 2023, conducted by Planned Resources in partnership with the Victorian Municipal Building Surveyors Group, revealed the following:

• Increased vacancy rates in council building departments, with 65 vacant roles reported across 42 surveyed councils.
• An average vacancy duration of over 12 months, with some councils unable to fill positions for up to five years.
• Extrapolating across Victoria’s 79 councils, approximately 122 building services vacancies exist, with an average of 1.54 vacancies per council.
• Council salaries were cited as a major reason for recruitment challenges, despite a 14.48% increase in salaries since 2021, which still remains at least 14% below competitive market rates.
• Senior leadership positions are at risk, with 42% of councils having a Municipal Building Surveyor (MBS) or Deputy MBS at retirement age.
• Only 50% of councils with staff at retirement age have succession plans in place, meaning some councils may face a 12-month gap in fulfilling statutory obligations if key staff resign suddenly.
• Registration barriers are also an issue, with 45% of councils reporting difficulty in attracting talent due to the complexity of meeting VBA registration requirements.

Without intervention, these shortages will increase project delays, drive up construction costs, and weaken compliance enforcement, compromising safety and regulatory oversight in the built environment.

The following dataset, provided by the Job and Skills Australia for the Building Inspector profession (Building Surveying) provides information on the Occupations in Shortage List (OSL) for the years 2021 to 2024. The key details include:

• Occupation (e.g., Building Inspector/ Surveyor)
• National Shortage Rating (Indicates whether the occupation is in shortage nationwide)
• State/Territory Shortage Ratings (Shows whether the occupation is in shortage in each state)
• Skill Level (Indicates the ANZSCO skill level for the occupation)

Summary of Building Inspector Shortage Ratings (2021-2024)

Key Observations:

1. In 2021, Building Inspectors were not considered a national shortage, though there were localised shortages in NSW.
2. From 2022 onwards, a national shortage was declared, with all states and territories affected.
3. In 2024, NSW no longer reported a shortage, while all other states and territories continued to experience shortages.
4. The skill level remained at Level 2 across all years.

While no additional research has been conducted in other states, these statistics further reinforce the declining number of professionals in the field and the growing reliance on their expertise. The data highlights a notable increase in demand for Building Inspectors from 2022 onwards, reflecting the widening gap between industry needs and workforce availability.

This trend underscores the urgent need for proactive workforce development strategies, including increased training opportunities, structured career pathways, and targeted recruitment initiatives, to ensure the sustainability of the profession and mitigate the ongoing shortage. Without intervention, the industry risks further strain on regulatory compliance, project delays, and increased pressure on existing professionals.

3. The Role of RPL in Addressing Workforce Shortages

The Recognition of Prior Learning (RPL) framework provides an opportunity to formally recognise skills and experience gained through practical work and apply them toward accredited qualifications. In the case of building surveying, an enhanced RPL pathway for trade-based professionals could be developed to streamline their transition into the profession, leveraging their on-site experience in construction compliance, inspections, and regulatory processes.

Benefits of an RPL Pathway for Tradespeople into Building Surveying:

• Accelerates workforce entry – Reduces the need for full-length tertiary study, allowing skilled tradespeople to transition more quickly into certification roles.
• Leverages existing industry knowledge – Many carpenters and builders already possess a strong understanding of NCC compliance, site inspections, and construction quality control.
• Encourages career progression & retention – Provides an alternative career pathway for experienced construction professionals, helping to retain talent within the industry.
• Addresses regional workforce shortages – Allows local tradespeople to upskill and fill vacancies in regional councils without relocating for extended study.
• Maintains compliance & professional standards – A structured RPL assessment process ensures all candidates meet competency-based regulatory requirements before entering the profession.

4. Proposed Enhancements to Frameworks and the Certificate III in Carpentry and Joinery as a Pathway to Building Surveying

The Certificate III in Carpentry and Joinery (CPC32011) provides tradespeople with essential skills in structural work, compliance, and construction methodologies. By modifying elements of this qualification and incorporating foundational knowledge of building surveying principles, it could serve as a stepping stone into formal accreditation pathways.

Recommended Modifications to the Qualification

Expansion of Compliance and Regulatory Units

Introduce units covering interpretation of the National Construction Code (NCC), building classifications, and compliance enforcement.

Strengthen knowledge of planning laws, building approvals, and permit systems.

Introduction of Building Surveying Fundamentals

Add content on risk assessment, fire safety provisions, disability access requirements, and energy efficiency compliance.

Develop a bridging course that introduces building inspections, defect analysis, and compliance audits.

RPL Assessment Criteria Aligned with Building Surveying Competencies

Establish clear competency benchmarks that allow experienced tradespeople to demonstrate their understanding of compliance, plan assessment, and regulatory interpretation.

Incorporate workplace evidence, case studies, and practical compliance assessments into the RPL process.

Structured Pathway to Formal Building Surveying Accreditation

Establish a direct pathway from Certificate III graduates to further qualifications, such as:

Diploma of Building Surveying (CPC50120)

Advanced Diploma of Building Surveying (CPC60121)

Building Surveyor Accreditation (through the Australian Institute of Building Surveyors – AIBS)

Develop bridging programs that shorten the duration of tertiary-level surveying qualifications.

“Preparing Secondary Students for Work”

Overview

The “Preparing Secondary Students for Work” framework was developed to provide vocational education and training (VET) pathways for secondary students. It aimed to enhance collaboration between schools, training organisations, and industry to improve employment outcomes. However, this 2014 policy is now outdated and does not fully align with modern industry demands, particularly in expanding pathways from vocational training into professional qualifications like Building Surveying.

Key Components of the Policy & Areas for Review

Recommendations for Policy Review

To modernise the framework, the following updates should be considered:

1. Incorporating Professional Pathways into VET Introduce Recognised Prior Learning (RPL) models that allow skilled tradespeople (e.g., carpenters) to transition into Building Surveying and other professional roles. Revise Certificate III qualifications (e.g., Carpentry & Joinery) to include compliance, regulatory knowledge, and pathways into professional licensing.
2. Expanding Collaboration with Professional Regulatory Bodies Require early engagement with peak industry bodies (e.g., Australian Institute of Building Surveyors, Master Builders SA, Construction Industry Training Board (CITB)) to ensure training aligns with workforce needs. Develop formal mentoring or apprenticeship programs between trades and professional sectors (e.g., a carpenter working under a building surveyor to gain compliance knowledge).
3. Addressing Industry Shortages Through Education Reform Modify high school VET curriculums to provide clearer pathways into professional qualifications (e.g., pre-apprenticeship programs leading into Advanced Diploma of Building Surveying). Introduce fast-tracked VET pathways for skilled tradespeople to upskill into regulatory professions (e.g., Building Certifiers, Inspectors, and Surveyors).

The 2014 policy remains relevant but needs a major review to ensure vocational education not only leads to trade-based careers but also professional roles. By introducing RPL pathways, expanding trade education to cover regulatory aspects, and strengthening collaboration with professional bodies, the construction industry can address skill shortages in critical roles like Building Surveying.

5. Integrating Foundation Skills into Trade Qualifications: Enhancing Early Development in the Construction Industry

Foundation skills, including language, literacy, and numeracy (LLN) skills, play a critical role in the construction industry. These skills are formally outlined in the Australian Core Skills Framework (ACSF), which defines the levels of competence required for effective workplace communication, numeracy, and problem-solving.

While trade qualifications such as the Certificate III in Carpentry and Joinery (CPC30220) focus on technical skills, there is growing recognition that embedding core foundation skills into these qualifications can improve career progression, workplace efficiency, and regulatory compliance.

Why Foundation Skills Matter in the Trades

Trade-based work is highly technical, requiring precise measurement, interpretation of building codes, safety compliance, and problem-solving. A lack of strong LLN skills can lead to:

• Misinterpretation of technical drawings and specifications.
• Errors in measurement and calculations, leading to costly rework.
• Difficulty in understanding and applying regulatory requirements, such as the National Construction Code (NCC).
• Challenges in documenting compliance reports, site inspections, and safety protocols.
• Barriers to career progression, particularly for those looking to transition into supervisory or professional roles like building surveying.

Applying the Australian Core Skills Framework (ACSF) to Trade Qualifications

The Australian Core Skills Framework (ACSF) categorises foundation skills into five key areas:

1. Learning – Ability to acquire and apply new skills.
2. Reading – Understanding and interpreting written information, including technical documents.
3. Writing – Clear documentation of work, reports, and compliance records.
4. Oral Communication – Effective communication with clients, colleagues, and stakeholders.
5. Numeracy – Measurement, calculations, and quantitative problem-solving.

By integrating these into trade qualifications, apprentices and trainees develop these skills early, ensuring they are equipped for both hands-on work and career advancement.

How LLN Skills Can Be Integrated into Trade Training

Embedding Foundation Skills into Trade-Based Education

To effectively integrate LLN skills into trade qualifications, several approaches can be adopted:

1. Contextualised LLN Training – Teaching literacy and numeracy within the context of real-world construction scenarios (e.g., interpreting site plans, calculating timber lengths, writing incident reports).
2. On-the-Job LLN Development – Encouraging workplace-based learning where trainees engage in hands-on applications of literacy and numeracy under mentorship.
3. Structured LLN Assessments – Including practical assessments within trade courses that test numeracy (e.g., measurement accuracy) and literacy (e.g., report writing for site inspections).
4. Career Pathway Integration – Designing trade qualifications to bridge into higher-level roles, such as building surveying, by ensuring trainees are prepared for advanced study and compliance-based responsibilities.
5. Mentorship & Workplace Support – Encouraging experienced tradespeople to mentor apprentices, providing LLN skill development alongside technical trade skills.

The Long-Term Benefits of Early LLN Integration in Trades

• Improved Workplace Safety & Compliance – Clearer understanding of safety protocols, compliance documentation, and regulatory requirements.
• Higher Efficiency & Accuracy – Reduced construction errors, better material usage, and improved team coordination.
• Stronger Career Progression – LLN-integrated training creates a pathway for tradespeople to move into leadership, project management, or building surveying roles.
• Better Industry Reputation & Employer Confidence – Employers gain skilled workers who can handle technical, compliance, and communication demands effectively.

Summary

Foundation skills, particularly language, literacy, and numeracy (LLN), are essential for success in trade-based professions. By embedding LLN training into Certificate III trade qualifications, workers develop these skills early, ensuring they are well-prepared for technical work, compliance, and career progression.

For Australia to address skill shortages in critical areas such as building surveying, stronger LLN integration in vocational education is necessary. This approach will enhance workforce capability, improve safety and efficiency, and create clearer pathways from trades into professional certification roles.

6. Expanding VET Provider Capacity to Support Building Surveying Pathways

One of the significant barriers to increasing the number of qualified building surveyors is the limited availability of training providers offering the Advanced Diploma of Building Surveying (CPC60121). Despite the growing demand for building certifiers, only a small number of VET Registered Training Organisations (RTOs) across Australia currently deliver this qualification. This lack of accessibility significantly restricts entry into the profession, particularly for those in regional and remote areas.

Many existing VET providers, including those that already deliver construction-related qualifications, have the infrastructure, frameworks, and accreditation necessary to expand their scope to include the Advanced Diploma. By leveraging the training resources, assessment models, and RPL frameworks already in place within trade-based qualifications, these institutions could play a crucial role in facilitating the trade-to-surveying transition.

Opportunities for VET Sector Expansion

1. Encouraging More RTOs to Offer the Advanced Diploma Industry bodies and government agencies could work with existing construction-focused RTOs to help expand their scope to deliver building surveying qualifications. Financial incentives or funding programs could be introduced to assist RTOs in establishing the necessary accreditation and resources.
2. Leveraging Existing Training Frameworks Many RTOs already deliver trade-based qualifications such as the Certificate III in Carpentry and Joinery, Certificate IV in Building and Construction, and Diplomas in Construction Management. These providers have established industry partnerships, training infrastructure, and expertise in competency-based education, making them well-positioned to integrate building surveying pathways.
3. Expanding Online and Regional Access Given the high demand for building surveyors in regional areas, RTOs should be supported to deliver the Advanced Diploma via online, hybrid, and flexible delivery models. Collaboration with regional councils and industry could further facilitate workplace-based learning and mentoring, reducing the need for students to relocate to major cities.
4. Integration of RPL for Trade Professionals Existing RPL models could be expanded to include direct pathways from trade qualifications into surveying, allowing skilled tradespeople to fast-track their certification. Developing bridging programs and modular courses would allow RPL candidates to fill specific knowledge gaps without undertaking full-length programs.

The Role of Government and Industry in Supporting Expansion

For this approach to succeed, government and industry stakeholders must support and promote the expansion of building surveying qualifications within the VET sector. This could involve:

• Incentivising RTOs to deliver building surveying qualifications through funding grants, accreditation assistance, and industry partnerships.
• Streamlining accreditation processes to allow existing RTOs with trade training expertise to add Advanced Diploma programs to their scope.
• Establishing regional training hubs to increase access to building surveying education outside metropolitan areas.

By expanding the number of RTOs delivering the Advanced Diploma of Building Surveying and leveraging existing VET frameworks, the industry can significantly increase the number of trained building surveyors, addressing workforce shortages and ensuring the continued integrity of Australia’s construction compliance sector.

7. The Final Benchmark: Building Surveying as the End Goal

By modifying trade-based qualifications to incorporate compliance and regulatory knowledge, the industry can create a structured and practical pathway into building surveying. This model would:

• Fill the critical workforce shortage by creating a sustainable pipeline of new professionals.
• Encourage career progression for carpenters and builders, reducing reliance on traditional university pathways.
• Maintain high compliance standards by ensuring that trade professionals transitioning into surveying meet rigorous competency assessments.

A trade-to-certification pathway offers a practical and scalable solution to Australia’s growing building surveyor shortage, ensuring the industry remains well-regulated, efficient, and capable of supporting future development.

8. Conclusion

The shortage of building surveyors in Australia presents a significant challenge to the construction industry, local governments, and private certification bodies. As demand and media attention for regulatory compliance, building approvals, and site inspections continues to grow, it is critical to establish sustainable workforce solutions to ensure timely and effective building certification processes.

A key strategy to alleviate workforce shortages is to expand entry pathways into the building surveying profession, particularly by leveraging trade-based experience through the Recognition of Prior Learning (RPL) framework. By modifying the Certificate III in Carpentry and Joinery to incorporate compliance knowledge, regulatory principles, and professional development opportunities, a structured trade-to-certification pathway can be created. This would provide skilled tradespeople, such as carpenters and builders, with a direct route into building surveying, reducing reliance on traditional tertiary education models.

In addition, outdated vocational education policies—such as the 2014 “Preparing Secondary Students for Work” framework—need urgent review to ensure high school VET programs offer clearer progression routes into professional careers. The introduction of pre-apprenticeship training, bridging courses, and competency-based progression models could increase participation in the building certification sector, while also strengthening industry collaboration to ensure alignment with workforce needs.

Further, language, literacy, and numeracy (LLN) skills should be embedded within trade qualifications to enhance regulatory understanding, workplace efficiency, and career mobility. These foundation skills are essential for ensuring that workers are prepared for compliance-based roles, as well as higher-level responsibilities in the certification profession.

A major barrier to addressing the building surveyor shortage is the limited availability of training providers offering the Advanced Diploma of Building Surveying (CPC60121). Only a handful of VET Registered Training Organisations (RTOs) currently provide this qualification, restricting access—especially for regional and remote learners. However, many existing VET providers already have the frameworks, industry connections, and training expertise to expand their scope and offer this qualification. By incentivising more RTOs to deliver the Advanced Diploma, integrating online and regional training options, and strengthening RPL pathways, Australia can significantly increase the number of qualified building surveyors.

Ultimately, the trade-to-certification pathway offers a practical, scalable, and industry-driven solution to address Australia’s growing shortage of building surveyors. By enabling experienced tradespeople to transition into regulatory roles, this model ensures that the profession remains sustainable, well-regulated, and capable of supporting future industry growth.

Now is the time for industry leaders, policymakers, and training institutions to take action. By strengthening vocational pathways, recognising industry experience, and expanding training opportunities, Australia can secure a strong, competent, and well-equipped workforce for the future of building surveying and compliance.