There is no conflict of interest.
Highlights
- The study's objective was to examine the activities of State Apprenticeship Expansion (SAE) grantees.
- The authors used data from SAE grant applications and Quarterly Performance Reports (QPRs) and conducted interviews with grantees, providing descriptive statistics on grantee efforts and apprenticeship data and qualitative analysis of interview responses.
- Grantees reported developing new programs and expanding existing programs, serving over 140,000 registered apprentices. States conducted a variety of activities, including employer and apprentice outreach, updating infrastructure and policies, providing financial and technical assistance, and collaborating with a variety of partners, including educational institutions, local workforce boards and American Job Centers, industry partners, and government agencies.
- The authors note that interviews with grantees have some limitations that could bias the findings. These include not representing all SAE grantees, differences in interview topics across states, and the possibility that respondents may struggle to remember past activities, identify SAE grant-related activities, or reflect on activities they did not participate in.
Intervention Examined
Features of the Intervention
Registered apprenticeships (RA) involve classroom instruction, also known as related technical instruction (RTI), on-the-job learning, and a nationally recognized credential upon program completion. These programs are registered under the U.S. Department of Labor's (DOL) Office of Apprenticeship (OA) or State Apprenticeship Agencies (SAA). To further develop and expand apprenticeship across the country, the DOL offered State Apprenticeship Expansion (SAE) grants to 36 states and one territory, an investment totaling in $50.5 million. Thirty-six SAE grants were later renewed through October 2020, with an additional $49 million offered to these states. Activities and strategies pursued under the grant varied by states and their partners.
Features of the Study
The authors analyzed SAE grantee reporting data and conducted interviews with grantees to examine SAE grant efforts, including activities, partnerships, use of funds, policies, and lessons learned. Data sources included grant applications and Quarterly Performance Reports (QPRs) which provide data on apprentices served, programs developed or expanded, and grant activities. The authors conducted phone interviews with grantee representatives, including grant leaders and/or representatives from partner agencies with key roles in the grant. The study sample included 37 grantees in the U.S. (36 states and one territory) who received SAE funding from 2016 through October 2020 to develop and expand apprenticeship programs. The interviews consisted of grantee representatives from 34 of the 37 grantees, though the authors attempted to interview all grantees. The authors summarized the descriptive statistics from the grant applications and QPRs and reported the qualitative findings from the interviews.
Findings
- By the end of 2019, grantees reported serving a total of 142,780 registered apprentices and 6,614 pre-apprentices. Thirteen states surpassed the 15 percent baseline target for registered apprentices under the SAE grant, while ten states exceeded the 5 percent baseline target. However, the remaining states did not meet either of these targets. Overall, states created 2,525 new registered apprenticeship programs, expanded 4,201 existing programs, and involved 13,559 businesses in these initiatives.
- States experienced challenges in meeting reporting requirements due to a lack of suitable data systems for tracking grant progress. To overcome these issues, they took steps such as hiring additional staff, enhancing existing databases, and acquiring new database systems to improve data management. Grantees also struggled with insufficient staffing and a lack of understanding of reporting systems, which were often affected by staff turnover and changes in leadership. Additionally, some states reported difficulties in accessing apprenticeship data held by the OA.
- Grantees improved their capacity at the state and local levels by hiring more staff and upgrading infrastructure. Twenty-nine grantees collaborated with external partners, including colleges and universities, nonprofits, local workforce development boards or American Job Centers, industry partners, and government agencies. Fourteen grantees provided training and technical assistance to staff, subgrantees, and sponsors. States offered financial support for related technical instruction, on-the-job training, and employer incentives.
- Interviews with grantees revealed that key partners in expanding RAs included community and technical colleges, workforce boards, industry associations, employers, and educational institutions. Community and technical colleges were noted for their broad reach, funding capabilities, community connections, and established partnerships with employers.
- Marketing strategies were developed to engage employers and potential apprentices, using direct contact, events, digital marketing, and partnerships with educational institutions.
- Most grantees used the grant to create standards and schedules for their programs, with many also developing new occupation programs and expanding existing ones. Many grant recipients created pre-apprenticeship programs, often connected to registered apprenticeship programs, and targeted to underrepresented groups.
- 13 states were targeting underrepresented groups, including youth, Veterans, individuals with disabilities, women, and racial and ethnic communities like Black, Hispanic, and Native American populations. Customized messaging and strategic partnerships with organizations serving these groups were crucial for encouraging participation in RAs, and states lacking such networks faced outreach difficulties. To improve access for underserved groups, grantees offered career readiness services, pre-apprenticeships, and employer outreach. Grantees also offered supportive services and mentorship to help apprentices complete their programs.
- Grantees coordinated with various state agencies, such as education and vocational rehabilitation, to enhance RA opportunities for underserved populations and emerging industries. Many states established advisory committees to facilitate collaboration among state agencies and partners, ensuring oversight of the SAE grant and its initiatives.
- State and local workforce development boards were vital in recruiting and screening apprentices, providing essential services, and engaging with employers using Workforce Innovation and Opportunity Act (WIOA) funding. Additionally, industry associations, employers, and unions played significant roles by offering pre-apprenticeship programs and supporting RA initiatives.
- The study highlighted several factors influencing the SAE grant implementation, including regional economic and labor market conditions, state WIOA plans, economic development strategies, postsecondary objectives, the existing apprenticeship infrastructure in the state, and whether their RA programs were registered with OA or an SAA.
- State legislatures were investing in apprenticeship programs, with twelve enacting legislation to expand RAs. These included creating a directory of RAs, establishing a commission for apprenticeship models, waiving postsecondary tuition for high school graduates, mandating journeyworker employment in refineries and chemical plants, and offering tax credits for employer participation. Governors in some states implemented executive orders and statewide initiatives to promote RA, including expanding educational attainment, preparing students for high-demand occupations, and connecting state agencies and employers.
Considerations for Interpreting the Findings
The interviews included only 34 of the 37 SAE grantees, despite efforts to include all. The authors acknowledge potential biases due to limitations such as non-representative samples, varied interview topics by state, and respondents' difficulties in recalling or differentiating activities related to the SAE grant. Additionally, not all demographic data on apprentices was available.
Research Guidelines
Review Protocol: Employment and Training Review Protocol
Review Guidelines: Quantitative Descriptive Guidelines