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UNITED STATES DEPARTMENT OF LABOR

Implementing registered apprenticeship programs: Experiences of 10 American Apprenticeship Initiative grantees [Valley to Virginia] (Copson et al., 2021)

  • Findings

    See findings section of this profile.

    Evidence Rating

    Not Rated

  • Review Protocol

Review Guidelines

Implementation Guidelines

This study was conducted by staff from Abt Global, which co-administers CLEAR. The review of this study was conducted by ICF, which co-administers CLEAR and is trained in applying the CLEAR implementation study guidelines. 

Citation

Copson, E., Kappil, T., Gardiner, K., Clarkwest, A., Engle, H., Trutko, A., Trutko, J., Glosser, A., Webster, R., Kuehn, D., Lerman, R., & Shakesprere, J. (2021). Implementing registered apprenticeship programs: Experiences of 10 American Apprenticeship Initiative grantees. Report prepared for the U.S. Department of Labor, Employment and Training Administration. Rockville, MD: Abt Associates.

Highlights

  • The study’s objective was to examine the implementation of the American Apprenticeship Initiative (AAI) which provides grants to expand Registered Apprenticeship Programs. This profile focuses on Valley to Virginia (V2V).  
  • The study authors conducted an implementation evaluation using data obtained through interviews, a survey, and programmatic data obtained from DOL's Apprenticeship Quarterly Performance Report (QPR) system.  
  • The study found that the Virginia Department of Labor and Industry (VDOLI) played a vital role in identifying employers for V2V. Employers were also referred from Virginia Career Works staff and through personal connections of the V2V project director. V2V collaborated with multiple community colleges to provide related technical instruction (RTI) as well as partnering with online providers and using trainings developed by employers. V2V registered 95 apprenticeship programs using AAI grant funds across various sectors. Of these programs, most were time-based with smaller proportions of competency-based or hybrid. At the time of the study, V2V registered 1,086 apprentices and served 188 pre-apprentices (exceeding their goal for both).  
  • A strength of the study is the detailed information about program operations, particularly around employer engagement activities. Additionally, spotlights highlight the Hershey Company's industrial manufacturing technician registered apprenticeship program and the pre-apprenticeship in manufacturing technology for the Wilson Workforce and Rehabilitation Center. However, one limitation is that the study authors do not provide details about their data collection methods.  
  • There was no companion impact study. 

Intervention Examined

Valley to Virginia (V2V)

Features of the Intervention

  • Type of organization: Sub-state government agency 
  • Location: Multi-site in Virginia 
  • Population served and scale: Veterans; Women; Racial/ethnic minorities; Individuals with disabilities; Non-college aged adults; 1,086 apprentices and 188 pre-apprentices 
  • Industry focus: Manufacturing 
  • Intervention activities: On-the-job learning (OJL); Related technical instruction (RTI); Supportive services. 
  • Organizational partnerships: Employers; Education; Non-profits 
  • Cost: Not included 
  • Fidelity: Not included 

The U.S. Department of Labor’s (DOL) American Apprenticeship Initiative (AAI) provided $175 million in grants to expand Registered Apprenticeship Programs (RAPs) in areas that did not have many registered apprentices and for populations underrepresented in RAPs (e.g., women, Veterans, racial or ethnic minorities, individuals with disabilities, non-college aged adults). Beginning in 2015, DOL awarded five-year AAI grants to 46 grantees nationwide. 

The Shenandoah Valley Workforce Development Board (SVWDB), a nonprofit organization that administers the Workforce Innovation and Opportunity Act (WIOA) program, received a $4,000,000 AAI grant. SVWDB created the Valley to Virginia (V2V) program. V2V worked with employers, set up and registered apprenticeship programs with the DOL, recruited people for pre-apprenticeships, and provided funding for related technical instruction (RTI), tools, and equipment for advanced manufacturing jobs. AAI grant funds were used for V2V staff salaries, RTI expenses, equipment, and direct financial help for apprentices and pre-apprentices. This included costs for gas, uniforms, tools, books, and cash incentives after they registered for and completed a RAP. RTI payments averaged approximately $2,600 per person. Midway through the grant, AAI funds were used to support a job coach at the Hershey Company. This coach helped participants stay in the pre-apprenticeship program and successfully join the RAP. 

V2V targeted populations consistent with the overall AAI grant. Recruitment strategies included referrals from Virginia Career Works centers, television, radio, social media, fliers, and attendance at special events for target populations (e.g., transitioning service members). Some employers developed and offered RAPs to train their current workers for higher-level positions, then hired external candidates to fill the newly available lower-skilled jobs.  

Features of the Study

SVWDB was one of ten grantees selected to participate in the implementation study. Selection criteria included participation in a recruitment sub study, grantee institution type (i.e., state agency, sub-state agency, college, or sector-based organization), progress toward target enrollees, and prior history with RAPs. 

In the apprenticeship program, 80% of the participants were men. Among them, 27% were under 25 years old and 51% were between 25 and 44. The racial breakdown included 7% Hispanic (of any race), 79% White, and 12% Black. Additionally, 9% were Veterans and 6% were people with disabilities. In the pre-apprenticeship program, 89% of the participants were men, 52% were under 25 years old and 42% were between 25 and 44. The racial breakdown included 10% Hispanic (of any race), 75% White, and 10% Black. Also, 4% were Veterans and 24% were people with disabilities. 

Interviews were conducted in person during site visits in Spring 2019 and over the phone in Fall 2020 due to COVID-19 restrictions. A survey was conducted with a grantee representative between June and July 2019. Programmatic data were obtained from DOL's Apprenticeship Quarterly Performance Report (QPR) system. The study authors do not include information about the number of interviews conducted or their analytic methods. Also, while there were multiple study sites in the Shenandoah Valley covering 10 rural counties and 6 cities, the number of study locations was not explicitly provided.  

Findings

Intervention Activities/Services 

  • The study found that V2V effectively reached out to employers, registered participants for pre-apprenticeship and apprenticeship programs, provided OJL and RTI, and provided supportive services for participants, along with coaching and support to employers and other partners.  
  • The Virginia Department of Labor and Industry (VDOLI) played a vital role in identifying employers for V2V. Employers were also referred from Virginia Career Works staff and through personal connections of the V2V project director.  
  • V2V collaborated with multiple RTI providers including Blue Ridge Community College, Lord Fairfax Community College, Massanutten Technical College, and an online training provider Tooling U-SME. Employers also provided trainings they developed. 
  • V2V registered 95 apprenticeship programs using AAI grant funds in manufacturing, construction, and other occupations. Most (57%) were time-based and 43% were competency-based or hybrid. 
  • At the time of the study, V2V registered 1,086 apprentices (181% of their 600 goal) and served 188 pre-apprentices (537% of their 35 goal). 

Implementation Challenges and Solutions 

  • The study found that as many as five conversations were needed to move an employer from interest to sponsoring an apprenticeship program. Additionally, pre-apprenticeships did not transfer to apprenticeship programs, so it was challenging to place pre-apprenticeship completers into apprenticeships.  
  • The RTI funds were helpful in moving employers to solidify a training approach through an apprenticeship program. 
  • Hershey's industrial manufacturing technician program, a two-week paid onsite program, was a success and could be model for young and low-income workers who have no prior job experience. Also, V2V provided funding for a pre-apprenticeship coach to help with issues faced by participants, like transportation problems and workplace behavior, which could benefit those in the program. 
  • With funding through V2V, the Wilson Workforce and Rehabilitation Center's (WWRC) pre-apprenticeship program was able to create a live-in pre-apprenticeship program to train people with disabilities for manufacturing jobs. WWRC graduated pre-apprentices and placed several graduates. WWRC planned to continue their manufacturing program and hoped to start a pre-apprenticeship in information technology. 
  • The program adapted to COVID-19 challenges by offering physically distanced or online RTI. When in-person classes were possible, fewer students could be accommodated due to physical distancing requirements. Business closures and general economic uncertainty affected the number of positions available. The WWRC pre-apprenticeship had to stop for approximately six months due to infection concerns since participants lived in dormitories.  

Considerations for Interpreting the Findings

The study authors provide details about the program operations particularly around employer recruitment and engagement activities. Additionally, spotlights provide details about RTI, OJL, and the certificates and credentials awarded on two programs: Hershey's industrial manufacturing technician program and the WWRC pre-apprenticeship program. However, little information was provided about data collection methods and analyses.  

Additional Sources

Gardiner, K., Kuehn, D., Copson, E., & Clarkwest, A. (2021). Expanding registered apprenticeship in the United States: Description of American Apprenticeship Initiative grantees and their programs. Report prepared for the U.S. Department of Labor, Employment and Training Administration. Abt Associates, Rockville, MD: Abt Associates.

Reviewed by CLEAR

December 2024

Topic Area