Task Force On Apprenticeship Expansion

TASK FORCE ON APPRENTICESHIP EXPANSION
Final Report to:
The President of the United States

May 10, 2018

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Table of Contents
List of Task Force Members ............................................................................................................................... 9
Executive Summary ........................................................................................................................................... 10
Introduction ......................................................................................................................................................... 12
Apprenticeship in America ............................................................................................................................. 14
Recommendations for Apprenticeship Expansion ................................................................................. 21
Education and Credentialing........................................................................................................................................ 21

Recommendation 1: Expansion of Traditional Work-and-Learn Models .......................................... 21
Recommendation 2: Core Components of Work-and-Learn Models ................................................... 22
Recommendation 3: National Recognition and Portability of Credentials ........................................ 23

Recommendation 4: Clearly Articulated Requirements for Credentials ............................................ 24
Recommendation 5: Strategies for Affordability .......................................................................................... 24
Recommendation 6: Identification and Availability of Capacity-Building Resources................... 25

Attracting Business to Apprenticeship .................................................................................................................... 26
Recommendation 7: Improved Risk-Sharing Tools and Streamlined Processes to Manage
Them ............................................................................................................................................................................... 27

Recommendation 8: A Robust Needs Analysis to Narrow Down the Areas of Most Acute Skills
Shortage ......................................................................................................................................................................... 28

Recommendation 9: Centralized Apprenticeship Resources .................................................................. 29

Expanding Access, Equity, and Career Awareness.............................................................................................. 31
Recommendation 10: Building Brand Awareness of Apprenticeship through a Multi-Faceted
Campaign Will Promote Faster, More Respected, and More Diverse Pathways to Employment
........................................................................................................................................................................................... 31

Recommendation 11: The Federal Government Has Acknowledged the Necessity of
Apprenticeship Programs as a Model That Can Expand Pathways of Opportunity and
Incentivize Utilization of an Earn and Learn Model for Both the Employer and Apprentice .... 32

Recommendation 12: Ensuring Equity ............................................................................................................. 32
Recommendation 13: Improvements to Existing Registered Apprenticeship Program .............. 33

Administrative and Regulatory Strategies to Expand Apprenticeship....................................................... 34

Industry Recognized Apprenticeship Program Implementation Questions and
Recommendations..................................................................................................................................................... 34
Recommendation 14: Pilot Project..................................................................................................................... 34

Recommendation 15: Industry Sector Standards ........................................................................................ 35
Recommendation 16: Standards and Guidelines.......................................................................................... 35
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Recommendation 17: Inapplicability of the Davis-Bacon Act ................................................................. 35
Recommendation 18: Inapplicability of Wage Progression Rules ........................................................ 35

Recommendation 19: Multiple Associations in a Single Industry Sector ........................................... 36

Recommendation 20: Credentialing Standards ............................................................................................ 36

Recommendation 21: State Agency-Administered Training Funds ..................................................... 37

Recommendation 22: Performance Reporting Requirements ............................................................... 37

Registered Apprenticeship Program Recommendations.......................................................................... 38

Recommendation 23: WIOA Waivers and Set-Asides ................................................................................ 38
Recommendation 24: WIOA Performance Measures – Earnings .......................................................... 38

Recommendation 25: WIOA Performance Measures – Time to Completion .................................... 38
Recommendation 26: Wage and Hour Rules.................................................................................................. 38

Conclusion ............................................................................................................................................................. 39
Appendices............................................................................................................................................................ 40

Glossary ................................................................................................................................................................................ 40

Task Force Charter ........................................................................................................................................................... 42
Task Force Member Bios ............................................................................................................................................... 47

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List of Task Force Members
Michael Bellaman, President and CEO, Associated Builders and Contractors
Joshua Bolten, President and CEO, Business Roundtable

Walter Bumphus, President and CEO, American Association of Community Colleges
Wesley Bush, Chairman, CEO and President, Northrop Grumman
The Honorable Dennis Daugaard, Governor, South Dakota

Emily Stover DeRocco, Founder & CEO, E3 Engage Educate Employ
Cari Dominguez, Director, Manpower Inc.

Thomas J. Donohue, President and CEO, U.S. Chamber of Commerce

Montez King, Executive Director, National Institute for Metalworking Skills
Andrew Liveris, Chairman and CEO, Dow Chemical Company

Katherine Lugar, President and CEO, American Hotel & Lodging Association

Douglas J. McCarron, General President, United Brotherhood of Carpenters and Joiners of America

Sean McGarvey, President, North America's Building Trades Unions
Marc H. Morial, CEO, National Urban League

John Ratzenberger, Workforce Training Advocate
The Honorable Kim Reynolds, Governor, Iowa

Mark B. Rosenberg, Board of Directors, Association of Public and Land-Grant Universities

Joseph Sellers, Jr., General President, International Association of Sheet Metal, Air, Rail and
Transportation Workers
Dawn Sweeney, President and CEO, National Restaurant Association

Jay Timmons, President and CEO, National Association of Manufacturers

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Executive Summary
Apprenticeship programs, when implemented effectively, provide workers with a career path
featuring paid on-the-job training, skills development, and mentorship, while at the same time
providing employers with a steady source of highly trained and productive workers. These
programs have the potential to grow into a critical and successful component of America’s
workforce strategy, but are currently underutilized. Meanwhile, the American higher education
system is churning out a pool of in-debt job seekers who are not equipped to meet the skills needs
of many employers in the modern American economy. Recognizing this state of affairs, President
Trump issued Executive Order (E.O.) 13801, Expanding Apprenticeships in America, which required
the establishment of a Task Force on Apprenticeship Expansion to identify strategies and
recommendations to promote apprenticeships, especially in sectors where apprenticeship
programs are insufficient

The Task Force, which is comprised of 20 highly experienced members representing a balanced
range of perspectives, met multiple times beginning in November 2017, and concluding in May
2018. The full Task Force was subdivided into the following subcommittees: (1) Education and
Credentialing; (2) Attracting Business to Apprenticeship; (3) Expanding Access, Equity, and Career
Awareness; and (4) Administrative and Regulatory Strategies to Expand Apprenticeship. Each
subcommittee met individually to develop the strategies and recommendations identified in this
report, which are summarized below. The subcommittees presented their recommendations and
rationale to the full Task Force, which deliberated and voted to send the recommendations forward.

The Subcommittee on Education and Credentialing recommended that Industry-Recognized
Apprenticeship programs expand more traditional work-and-learn models to achieve higher levels
of employer engagement and better outcomes; include work-based learning and performance
assessment; and feature national recognition and portability of standards-based, industryrecognized credentials, the requirements for which should be articulated by the public-private
sector partners implementing the programs. In addition, the Subcommittee recommended that the
Federal partners of the Industry-Recognized Apprenticeship program should implement and
support strategies for making technical instruction more affordable for apprentices. Lastly, the
Subcommittee recommended that the Federal Government identify and make available capacitybuilding resources for certifying organizations, institutions of higher education, and other service
providers. The Subcommittee also recommended that employers should partner in planning for and
building capacity.

The Subcommittee on Attracting Business to Apprenticeship recommended that the IndustryRecognized Apprenticeship program should streamline and simplify program funding through
various methods, such as updating Federal funding criteria, streamlining State grant access, and
exploring sector-led financial options. In addition, the Subcommittee recommended that the U.S.
Department of Labor, along with other Federal agencies and industry groups, should conduct and
make available a needs analysis to identify existing skills shortages and quantify the benefits of
apprenticeships in meeting labor challenges, and also compile apprenticeship information in a
single, online, centralized website.

The Subcommittee on Expanding Access, Equity, and Career Awareness recommended that the
Federal Government should fund a brand awareness campaign for apprenticeships and take steps
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to expand access to and incentivize the use of an “earn-and-learn” model for employers and
apprentices. To ensure equity of access to Industry-Recognized Apprenticeship programs, the
Subcommittee recommended that the U.S. Department of Labor should implement clear guidelines
and fund community-based organization efforts, and certifiers and sponsors should develop
comprehensive outreach strategies. Lastly, the Subcommittee recommended that the U.S.
Department of Labor should vet concerns about the existing Registered Apprenticeship system and
take action to make improvements.

The Subcommittee on Administrative and Regulatory Strategies to Expand Apprenticeship
recommended that implementation of an Industry-Recognized Apprenticeship program should
begin with a pilot project in an industry without well-established Registered Apprenticeship
programs. The Subcommittee also recommended that the Industry-Recognized Apprenticeship
programs should focus on mastery and competency, not just seat-time or training hours, and that
program implementation guidelines should spell out the quality standards. In addition, the
Subcommittee recommended that Industry-Recognized Apprenticeship program participants
cannot be considered as apprentices for the purpose of meeting the Davis-Bacon Act wage
requirements (for the construction industry), and that programs are not required to follow specific
wage progression rules but clarify to apprentices what wages they will be paid and under what
circumstances wages will increase. Lastly, this Subcommittee categorized key questions highlighted
by their recommendations and recommended several administrative reforms and changes that
could be made to the Registered Apprenticeship system that would also expand apprenticeship
utilization in the United States.

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Introduction
On June 15, 2017, President Trump issued E.O. 13801, Expanding Apprenticeships in America, which
directed the Secretary of Labor to establish a Task Force on Apprenticeship Expansion (hereafter,
“the Task Force”) to identify strategies and proposals to promote apprenticeships, especially in
sectors where apprenticeship programs are insufficient. America’s education and workforce
development programs are in need of reform in order to meet the challenges of today’s rapidly
changing economy, namely the “skills gaps” that result from a workforce that is insufficiently
trained to fill existing and newly created jobs. As the E.O. asserts, expanding and promoting
apprenticeships, which provide paid on-the-job training, and valuable skills development, and
reforming ineffective education and workforce development programs will help promote more
affordable pathways to rewarding jobs for U.S. workers. As such, the E.O. directed the Task Force to
submit strategies and recommendations addressing the following areas:
1. Federal initiatives to promote apprenticeships;
2. Administrative and legislative reforms that would facilitate the formation and success of
apprenticeship programs;
3. The most effective strategies for creating Industry-Recognized Apprenticeships; and
4. The most effective strategies for amplifying and encouraging private sector initiatives to
promote apprenticeships.

In July 2017, the Secretary of Labor published in the Federal Register a solicitation of nominations
for Task Force members. 1 In August 2017, he executed a Task Force Charter pursuant to the
Federal Advisory Committee Act. 2 The E.O. specified that the Task Force would be chaired by the
Secretary of Labor, vice chaired by the Secretaries of Education and Commerce, and comprised of
no more than 20 members. In order to achieve the balanced representation of points of view and
subject matter expertise on apprenticeship-related matters contemplated by the E.O. and the
Charter, the Task Force includes individuals representing the perspectives of trade and industry
groups, companies, non-profit organizations, unions, joint labor-management organizations,
education institutions, State or local governments, and other individuals designated by the
Secretary of Labor. These members, all vetted by the U.S. Department of Labor to ensure
compliance with all legal and ethical requirements, come from a cross-section of those directly
affected, interested, and qualified as appropriate to the nature and functions of the Task Force.
The Task Force met in person for its inaugural meeting in November 2017, followed by several
additional meetings, either in person or via conference call, held in February 2018, March 2018,
April 2018, and May 2018. 3 Subsequent to the inaugural meeting, the full Task Force was subdivided into the following four subcommittees that developed the requested strategies and
recommendations to promote apprenticeships in America:

Nominations for the Task Force on Apprenticeship Expansion, 82 FR 34553 (July 25, 2017).
U.S. Department of Labor Task Force on Apprenticeship Expansion Advisory Committee Charter (Aug. 7,
2017), available at
https://www.dol.gov/apprenticeship/docs/2620_2017.08.07_DOL_2620_Task_Force_Charter.pdf (last
accessed May 3, 2018).
3 Public meeting minutes are available on the Task Force website: https://www.dol.gov/apprenticeship/taskforce.htm (last accessed May 3, 2018).
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1.
2.
3.
4.

Education and Credentialing;
Attracting Business to Apprenticeship;
Expanding Access, Equity, and Career Awareness; and
Administrative and Regulatory Strategies to Expand Apprenticeship.

Each subcommittee was directed with a scope of work linked to the duties of the Task Force and
met independently via conference call to develop subcommittee recommendations, which they
subsequently presented to the full Task Force in its public meetings. Many Task Force members
participated in more than their one assigned subcommittee. Many felt they had expertise to offer on
a variety of issues within the mission of multiple subcommittees. This broad participation was
welcomed.

All four subcommittees reported their agreed upon strategies and recommendations to expand
apprenticeships in America to the full Task Force at the public meetings where all members were
able to participate in discussion on each individual recommendation. During the April 10, 2018,
meeting of the Task Force, all members considered the full and final suite of strategies and
recommendations. At that time, the Task Force voted to send forward to the President all strategies
and recommendations submitted by the four subcommittees, including a glossary of terms, to
expand and promote apprenticeships in America, as directed by E.O. 13801.

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Apprenticeship in America
In today’s rapidly changing economy, it is more important than ever to prepare workers to fill both
existing and newly created jobs and to prepare workers for the jobs of the future. Higher education,
however, is a narrow path that is not working for enough young people, in part because it is
becoming increasingly unaffordable and no longer guarantees a middle-class income. For these
reasons, the President has called for expanding apprenticeships as a compelling and underutilized
way to connect education and workforce training. Apprenticeship is a proven model that provides
paid, relevant work experiences and opportunities to develop skills that employers value. For
workers, including individuals with disabilities, apprenticeships offer affordable paths to good jobs
and, ultimately, careers.

Under an apprenticeship program, which generally lasts from 1 to 6 years, workers develop
occupational skills and receive work-based training, classroom instruction, and mentorship all
while performing productive work for their employer and earning competitive wages. As defined in
the Registered Apprenticeship system administered by the U.S. Department of Labor,
apprenticeship training differs from other types of workforce training in that it includes the
following four key criteria:

1. Participants who are newly hired (or already employed) earn wages from employers during
training;
2. Programs provide on-the-job learning and job-related technical instruction;
3. On-the-job learning is conducted in the work setting under the direction of one or more of
the employer’s personnel; and
4. Training results in an industry-recognized credential. 4

A model for “earn-and-learn” opportunities, formal apprenticeship programs have played a key role
in creating a skilled workforce in America since 1933. 5 The regulations governing the National
Apprenticeship System (29 CFR part 29) provide the framework for the current American
apprenticeship system. The U.S. Department of Labor, working in conjunction with independent
State Apprenticeship Agencies, administers the program nationwide. While traditionally associated
with the construction trades and manufacturing, apprenticeship is also instrumental for training
and development in growing industries, such as health care, information technology, transportation
and logistics, and energy. 6
When developed and executed effectively, apprenticeships can provide relevant, paid, on-the-job
training and development of skills that employers seek, and viable paths to worthwhile jobs that
apprentices can build into productive, secure, and satisfying careers. Apprenticeships fill
employers’ skill needs while reducing unemployment and providing a debt-free career path for
young people. They can ease the transition from school to career, and remove barriers for students,
including those with disabilities, who are faced with choosing between higher education and
earning income. In addition, apprenticeship programs can help older members of the workforce

U.S. Department of Labor, Frequently Asked Questions about the Apprenticeship Program,
https://www.dol.gov/featured/apprenticeship/faqs (last accessed May 3, 2018).
5 Apprenticeship USA, http://www.apprenticeship-usa.com/ (last accessed May 3, 2018).
6 U.S. Department of Labor, Apprenticeship USA Toolkit – Frequently Asked Questions,
https://www.dol.gov/apprenticeship/toolkit/toolkitfaq.htm (last accessed May 3, 2018).
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acquire new skills and change employment pathways (“upskill and reskill”), which can play an
important role both economically and socially, especially as jobs become increasingly automated
and technology-dependent. Apprenticeships can also provide long-term careers and stability for
individuals and their families in low-income communities.

While apprenticeships represent a cost for companies, data shows the programs are worth the
investment. 7 Companies that utilize apprenticeship programs experience higher productivity and
higher employee retention rates. 8 Another benefit to apprenticeship sponsors is the increased
opportunity for innovation; because apprentices understand the principles behind the work they
are doing, they are often more adept at problem-solving and can adapt to new technologies. 9
International studies suggest that for every dollar spent on apprenticeships, employers may get an
average $1.47 back in increased productivity, reduced waste, and greater innovation. 10 In addition,
a review of Washington State’s workforce training outcomes found apprenticeships boosted
participants’ future taxable incomes and thus yielded a $23 return to taxpayers for every public
dollar spent, compared with a $3 return for community college. 11 At the Federal level,
apprenticeships are an extremely effective workforce training method, as every Federal dollar
invested in apprenticeship programs brings a $27 return on investment. 12

Praised and prioritized for their ability to create good jobs with long-term potential, apprenticeship
programs have recently garnered increasing bipartisan support. President Trump, in particular, as
well as his predecessor, State Governors, and elected officials on both sides of the aisle have touted
the benefits of apprenticeship to the American economy and workforce development. This support
has led to recent legislative and executive actions in support of expanding apprenticeship in
America. In June 2017, President Trump signed E.O. 13801 calling for the expansion of
apprenticeships in America and doubled the commitment of taxpayer money spent on
apprenticeship grants to $200 million. 13
Along with increasing support for apprenticeship programs, participation in the programs has
grown substantially in recent years. The United States has experienced a 42 percent growth in
apprenticeships since 2013, and the current number of active apprentices is 125 percent higher

7 A. Elejalde-Ruiz, Apprenticeship Programs Enjoy New Life as a Workplace Solution, Chicago Tribune (Oct. 26,
2017), available at http://www.chicagotribune.com/business/ct-biz-apprenticeship-expansion-1029story.html (last accessed May 3, 2018).
8 Jobs for the Future, Expanding and Enhancing Registered Apprenticeship for Career Success,
http://www.jff.org/initiatives/apprenticeships-future (last accessed May 3, 2018).
9 S. Helper, Economics & Statistics Administration, U.S. Department of Commerce, How U.S. Companies Use and
Adopt the Apprenticeship Model to Create an Innovative Workforce (Nov. 17, 2016),
http://www.esa.doc.gov/economic-briefings/how-us-companies-use-and-adapt-apprenticeship-modelcreate-innovative-workforce (last accessed May 3, 2018).
10 U.S. Department of Commerce, National Apprenticeship Week: Joint the Movement, Now Half a Million
Strong (Nov. 14, 2016), https://www.commerce.gov/news/blog/2016/11/national-apprenticeship-weekjoin-movement-now-half-million-strong (last accessed May 3, 2018).
11 A. Elejalde-Ruiz, supra note 7.
12 N. Wyman, Why Investing in Apprenticeship Makes Good Dollars and Sense, Forbes (Nov. 1, 2016), available
at https://www.forbes.com/sites/nicholaswyman/2016/11/01/why-investing-in-apprenticeship-makesgood-dollars-and-sense/#7bb320915de0 (last accessed May 3, 2018).
13 L. Kellman, Trump Orders More Cash, Industry Input for Apprenticeships, AP News (June 15, 2017),
https://apnews.com/6c006b33b63c4f899e9e8abbbb1a5278?utm_campaign=SocialFlow&utm_source=
Twitter&utm_medium=AP (last accessed May 3, 2018).

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than the 20-year annual average. In Fiscal Year 2017, more than 190,000 individuals nationwide
entered the apprenticeship system, and there are over 533,000 apprentices currently in
apprenticeship programs nationwide. 14

The Need for Expanded Apprenticeship in Modern America

While the use of apprenticeship as a workforce training strategy has experienced a renewed
interest in America, apprenticeship programs are not currently fulfilling their potential to help
meet America’s employment needs. There are multiple issues affecting the efficacy of
apprenticeships in building up the American workforce, and these issues are cross-cutting, affecting
labor, business, and education.

Higher education, namely 4-year baccalaureate degree programs, have become increasingly
unaffordable for the average American, culminating in the current student loan crisis. On average, a
student graduating college in 2016 possessed $37,000 in debt, and the total student loan debt
climbed to more than $1.3 trillion, triple the level from a decade ago. 15 Compounding this, many of
the graduates who are able to obtain degrees are leaving college without the skills required by
businesses in the modern and increasingly changing American economy. Only about 43 percent of
the current labor force are suitable for the 53 percent of job openings that are “middle skill,”
requiring less than a 4-year degree but more than a high school education. These openings not only
include blue-collar jobs such as carpenters, plumbers, and electricians, but also dental hygienists,
paralegals, and nurses. 16

American companies are bearing the burden of these unfilled positions due to the workforce’s lack
of relevant skills. Many American companies are optimistic and anticipating growth, but the lack of
a skilled workforce impedes expansion. This problem is particularly acute for small companies.
According to a February 2018 report from the National Federation of Independent Business, 52
percent of small business owners reported hiring or trying to hire, 47 percent of owners reported
that they had few or no qualified applicants for the positions they were trying to fill, and 34 percent
of owners reported job openings they could not fill. 17 The disconnect between the capabilities
offered by American job seekers and the skills demanded by the 21st century workplace, known as
the “skills gap,” contributes to the nation’s 6.3 million open jobs. 18 The skills gap is especially
prevalent in economically disadvantaged communities with high unemployment rates.

Apprenticeship can offer a key component to the solution to the skills gap. A recent Harvard
Business School study examined the skills demanded in job postings for more than 23 million
openings in 2016, identified the underlying skills in apprenticeship roles, and looked for similarities
U.S. Department of Labor, Employment and Training Administration, Registered Apprenticeship National
Results Fiscal Year (FY) 2017, https://doleta.gov/oa/data_statistics.cfm (last accessed May 3, 2018).
15 J. Chamie, Student Debt Rising Worldwide, Yale University, YaleGlobal Online (May 18, 2017),
https://yaleglobal.yale.edu/content/student-debt-rising-worldwide (last accessed May 3, 2018).
16 J.B. Wogan, Can Apprenticeships Train the Workforce of the Future? States Hope So, Governing (March 2018),
http://www.governing.com/topics/mgmt/gov-work-study-student-debt-apprenticeships.html (last accessed
May 3, 2018).
17 https://www.nfib.com/foundations/research-center/monthly-reports/jobs-report/ (last accessed May 3,
2018).
18 U.S. Department of Labor, Bureau of Labor Statistics, Economics News Release, Job Openings and Labor
Turnover Summary (Apr. 13, 2018), https://www.bls.gov/news.release/jolts.nr0.htm (last accessed May 3,
2018).
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in other positions. Based on this skills analysis, the study concluded that the opportunity to expand
apprenticeships in the United States is significant. In particular, creating apprenticeships in fields
such as graphic design, insurance claims adjustment, and medical transcribing could mean nearly
tripling the number of occupations commonly filled via apprenticeships for openings that
employers often find difficult to fill. By using an apprenticeship approach, businesses struggling
with skills gaps can take steps to ensure workers are trained to employer specifications and gain
the value of apprentices’ work during their training. 19 Moreover, any apprenticeship system should
be designed to ensure that the apprentice acquires skills that are applicable to and transferable
within the labor market and not tied to the needs of a single employer. 20

The current skills gap not only puts American workers and businesses in a precarious economic
position, but it could also negatively affect the United States’ position as a global economic leader.
Other developed countries, such as Germany and Switzerland, have more successfully integrated
apprenticeships into their education systems and workforces, leveraging the full potential of
apprenticeship programs to lower unemployment rates and contribute to economic success. In
Switzerland, for example, most 15-year-olds are in apprenticeships 21 and two-thirds of students in
the final stage of secondary education opt for vocational training, mostly in 3- or 4-year “dual”
programs combining classroom study with workplace training. 22 In Germany, apprenticeships are
supported financially by strong national trade unions, resulting in one-third of the workforce
moving through an apprenticeship program. 23 In fact, various apprenticeship models in the United
States have German or Swiss influence or roots. 24 Since G20 nations share the same concerns
relating to skills development and job creation and fulfillment, solving the skills gap in America by
establishing tailored frameworks comparable to those in other countries that have robust
apprenticeship programs would increase the U.S. global competitive advantage.

At the same time, despite the significant investment of taxpayer dollars each year, federally funded
education and workforce development programs are not equipped to serve the millions of
Americans who must learn work-related skills at an affordable cost. The Registered Apprenticeship
program is underutilized in a majority of industries, with only 0.3 percent of the workforce coming
up through Registered Apprenticeships. 25 In addition, some of the potential participants have
expressed concerns about the cumbersome regulatory process and the relatively low return on
investment, as compared to larger-scale private-public partnerships, while other employers have
A. Smith, Expanding Apprenticeships Across More Jobs, Inside Higher Ed (Dec. 1, 2017),
https://www.insidehighered.com/news/2017/12/01/opening-more-occupations-apprenticeships-couldmean-more-job-opportunities?utm_source=Inside+Higher+Ed&utm_campaign=b5ef334b09DNU20171201&utm_medium=email&utm_term=0_1fcbc04421-b5ef334b09-231632457&m (last accessed
May 3, 2018).
20 B. Parton, Youth Apprenticeship in America Today: Connecting High School Students to Apprenticeship, New
America (Dec. 14, 2017), https://www.newamerica.org/education-policy/policy-papers/youthapprenticeship-america-today/ (last accessed May 3, 2018).
21 J.B. Wogan, supra note 16.
22 R. Atkins, Switzerland Thrives on Apprenticeship Tradition, SWI (Dec. 27, 2017),
https://www.swissinfo.ch/eng/training-for-success_switzerland-thrives-on-apprenticeshiptradition/43769858 (last accessed May 3, 2018).
23 J.B. Wogan, supra note 16.
24 E. Redden, Importing Apprentices, Inside Higher Ed (Aug. 8, 2017),
https://www.insidehighered.com/news/2017/08/08/interest-grows-us-germanswiss-modelapprenticeships (last accessed May 3, 2018).
25 J.B. Wogan, supra note 16.
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expressed satisfaction with the registration process because it provides a key measure of quality
control and diversity in the registered apprenticeship system.

In addition to exploring the degree to which the current Registered Apprenticeship program will
remain intact for those who successfully employ it, a key part of the Task Force’s mission was to
develop effective strategies for creating a separate, streamlined, industry-led, and employer-driven
apprenticeship program that develops and recognizes high-quality, competency-based
apprenticeships. While there are challenges to overcome, developing such a refocused and
revitalized apprenticeship program will fully leverage the potential benefits to workforce
development and economic growth.
Implementation Challenges for U.S. Apprenticeship Expansion

There are several complex and interrelated challenges that must be overcome in order to fully
harness the potential of apprenticeship programs. Many of the Task Force’s recommendations
specifically focus on addressing workforce stability and growth.

Multiple challenges exist from the perspective of student interest and engagement in
apprenticeship programs (i.e., the “worker supply” side of the labor market). Many students and
their parents lack “career awareness” as it relates to apprenticeship programs. Young Americans do
not understand that apprenticeships are a viable track to a prosperous career. A key facet of
developing a revitalized apprenticeship approach is changing the ingrained societal mind-set that a
traditional 4-year baccalaureate degree is the only pathway to success. As discussed by Task Force
members, many no longer connect the idea of apprenticeships with a good living, as they have done
in the past via shop classes or technical training. This issue is further complicated by high school
counselors’ particular encouragement of 4-year university programs, in part because high schools’
success is measured on college attendance rates.

Along with expanding the career profile of apprenticeships, students must also be made aware of
the skills needed to qualify for a good job that sets them on a successful career path. Businesses
have been challenged in communicating the skills needed (i.e., the “demand signal”) to workforce
agencies and educational institutions, and students are not typically offered early career counseling
and work experience in high school. This all culminates in the fact that high school students, their
parents, counselors, and teachers lack the information they need to make informed choices relating
to in-demand skills and opportunities outside 4-year college degree programs. Exposure to the
marketable skills necessary to enter the market, the job opportunities that exist in each State (in
particular, “middle skills” jobs that require innovation), and what career paths and advancement
opportunities exist would all contribute to stimulating student interest in apprenticeship programs.
Hand-in-hand with promoting apprenticeships as an equally viable postsecondary option,
apprenticeship advocates must overcome the negative perception of a job in the skilled trades,
which contributes to older apprentices aging out of the programs without being replaced by
younger workers. Some industries, for example manufacturing, face a talent shortfall as baby
boomers who dominate its workforce retire and young people raised to prioritize college retain
outdated perceptions of “dirty” factory jobs. 26 As Task Force members asserted, apprenticeship
26

A. Elejalde-Ruiz, supra note 7.
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program supporters must work to “elevate the dignity of the work” and hold these types of familysustaining jobs in esteem, as they do in other countries with robust apprenticeship models.

Other barriers to enhancing student acceptance of and successful engagement in apprenticeship
programs exist. For example, traditional apprenticeship programs may not effectively promote
advancement, leaving apprentices feeling limited to a single job with one company. Building
sufficient flexibility into apprenticeship programs, namely emphasis on program reciprocity and
portable “stackable” credentials, would allow apprentices the flexibility to build their careers on
their own terms, as these credentials could lead to certificates and transfers to 4-year colleges and
universities if so desired. An additional barrier is that many apprenticeship positions require
transportation to or from remote training or work sites, which may be a significant challenge for
members of low-income communities.

Another significant challenge to overcome in the establishment of a successful apprenticeship
framework is garnering increased employer participation in apprenticeship programs (i.e., the
“employer demand” side of the labor market). As discussed in the U.S. Department of Commerce
report, The Benefits and Costs of Apprenticeship: A Business Perspective, apprenticeships have gained
prominence as a proven training model for workers, yet they have not necessarily been an “easy
sell” for businesses. 27 Many employers, especially small businesses, are concerned about the return
on investment for developing apprenticeship programs. They are wary of the costs associated with
sponsoring an apprenticeship program, such as management fees, wages, and tuition, relative to the
time it takes for an apprentice to become productive. Further, businesses express concern that
there is no guarantee that these trained workers will stay on after such an investment in them is
made. Despite clear pay off from apprenticeships, companies tend to give secondary attention to
apprenticeships rather than embracing it as their first option for talent development. 28
While many employers currently engaged in the Registered Apprenticeship system report
satisfaction with the registration process because it is a key factor in quality control and to foster
greater diversity, some employers have expressed concern that regulatory challenges that impede
the success of the current Registered Apprenticeship system also exist, including the cumbersome
creation and registration process and the bifurcated Federal/State approval system, which are
among those regulatory components that need to be addressed in a new Industry-Recognized
Apprenticeship approach in order to foster successful apprenticeships in America.
Call to Action

The Task Force recognizes that any meaningful expansion of the American apprenticeship
framework requires the collaboration of a number of critical stakeholders, including the private
sector, State and local governments, academia, unions, and trade associations. While the Federal
Government can establish the framework for a successful apprenticeship program and provide
support, substantial change must begin with industry-led partnerships playing the pivotal role of
creating, managing, and certifying apprenticeship programs.
27 U.S. Department of Commerce, The Benefits and Costs of Apprenticeship: A Business Perspective
(November 2016), available at https://www.commerce.gov/news/fact-sheets/2016/11/benefits-and-costsapprenticeships-business-perspective (last accessed May 3, 2018).
28 Id.

19

In its mandate, E.O. 13801 enabled the flexibility needed to create a new apprenticeship model that
meets modern American workforce needs. The Task Force strove to assist in building a value-based
program that progressively reinforces the apprenticeship model as a viable alternative to
traditional career pathways and to expand and promote American apprenticeship programs to
reach their full potential as a key component of a bipartisan workforce strategy. Based on the
superb qualifications, diverse perspectives, and hard work of the Task Force members, this report
contains recommended strategies to effectively promote the expansion of apprenticeships in
America that are innovative, robust, and agile to meet the needs of the rapidly changing 21st century
economy.

20

Recommendations for Apprenticeship Expansion
Education and Credentialing
The Subcommittee on Education and Credentialing was charged with exploring
educational opportunities to help ensure that more individuals are able to enroll
in and complete apprenticeships; strategies for increasing consistency among
providers of related technical instruction; strategies for making technical
instruction more affordable for apprentices and employers; and strategies for
relying on standards-based, nationally portable, industry-recognized credentials
as critical elements of quality assurance and accountability.
While paid, on-the-job training is a hallmark of apprenticeship opportunities, also
important to the apprenticeship experience is classroom instruction, whether
delivered by the employer, a 2-year or 4-year institution, or a trade association.
Not only does this education provide theoretical knowledge to support technical
skills and practices, it also facilitates the development of strong interpersonal
communication and problem-solving skills.
Recommendation 1: Expansion of Traditional Work-and-Learn Models
Referencing the Work-and-Learn Model Continuum (see Figure 1), the Industry-Recognized
Apprenticeship program should expand more traditional work-and-learn models to
incorporate the criteria of modern apprenticeship and to ensure better outcomes for workers
and employers.
There is a well-recognized continuum of work-and-learn models ranging from career fairs, industry
tours, job shadowing to mentorship, clinical practicums, on-the-job training, internships, and coops. Generally, these models are on a continuum from “low touch” – less structured, low employer
engagement, and varying practical experiences that reflect daily job tasks – to “high touch” – very
structured, high employer engagement, and full immersion in the most relevant working
environment by the learner.
Today, many employers and industry sectors have developed and are implementing competencybased work-and-learn models that link success to the mastery of established skills sets, rather than
completing courses and on-the-job training based on a rigid – and sometimes arbitrary – set of
hours. The Industry Recognized Apprenticeship program is a vehicle to move more traditional
work-and-learn initiatives to higher levels of employer engagement and to achieve better outcomes
for workers and employers.

21

Figure 1. Work-and-Learn Model Continuum

Work-andLearn Model
Continuum

Recommendation 2: Core Components of Work-and-Learn Models
Industry-recognized apprenticeships must include work-based learning and performance
assessment to ensure that the individual can apply knowledge, skills, and abilities related to
the job, as well as obtain the education credentials needed to advance on the job and in his/her
career. Certifiers of Industry-Recognized Apprenticeships should help ensure those
apprenticeships incorporate the core components of the most successful work-and-learn
models, namely:
A.
B.
C.
D.
E.
F.

Blended Learning
Credit for Prior Knowledge and Experience
Industry-Recognized Skill Standards and Credentials
Structured Mentorship
Paid Work Experience and Advancement Opportunities
Portable, Industry-Recognized Credentials, Program Completion Certificates, and/or
Degrees with Demonstrable Labor Market Value

22

Hands-on, real world work opportunities help students connect the dots between what they learn
in school and what they will need to know to be successful in their careers. Features of today’s
workplaces make this connection more important than ever. Members of today’s workforce often
need specific and advanced skills; they need to be agile and flexible; and they must come ready with
employability skills such as teamwork and problem solving. These skill sets are increasingly
important in the modern workforce. With the infusion of technology into virtually every workplace
and industry sector, employees also need to be able to innovate quickly and continuously while also
acquiring new skills.

Work-and-learn partnerships are the most successful way to address these challenges, and
Industry-Recognized Apprenticeships that incorporate the core components outlined above will
provide a clear pathway for working learners to gain the real-world experience they need.
Recommendation 3: National Recognition and Portability of Credentials

Where there are standards-based, nationally portable, industry-recognized credentials in the
field of new Industry-Recognized Apprenticeships, the Industry-Recognized Apprenticeship
program should ensure integration of the opportunity to earn the credential[s] and evidence
that related technical instruction is aligned to both the theory and performance-based
learning outcomes required for the credentials.
These credentials are important vehicles to better connect employers and learning providers. They
ensure that competency-based instruction is aligned with the knowledge, skills, and abilities
needed on the job and increase consistency among providers of related technical instruction.
Learning providers as referenced throughout this paper include career and technical education, 2and 4-year institutions, as well as virtual learning programs or systems.

When industry sector leaders take responsibility for convening employers within their sector, they
expend time and financial resources to identify and continuously update and document the
knowledge, skills, and abilities necessary for workers to perform in their jobs. When industry sector
leaders do so, the resulting standards-based learning outcomes and industry-recognized
credentials present to workers, educators, and employers a unified identification of the
competencies required for success on the job.
Industry organizations that invest in the creation and continuous improvement of industryrecognized credentialing programs report that the credentials provide workers with a clear
understanding of the knowledge, skills, and abilities needed to be successful on the job; they
provide educators with the competencies that should drive – and often accelerate – educational
pathways to employment and advancement; and they also provide employers within the industry
with workers whose knowledge and skills have been validated through performance assessment.

With increasing evidence that workers no longer tend to remain in one job, one company, or even
one industry sector for their entire career, the national recognition and portability of standardsbased, industry-recognized credentials are critical attributes and of great value to both workers
who will be mobile in their careers and lives, and employers who expand business lines and grow
operations in multiple venues across the country.

23

Recommendation 4: Clearly Articulated Requirements for Credentials
To rely on standards-based, nationally portable, industry-recognized credentials as a key
element of Industry-Recognized Apprenticeship program quality assurance and accountability,
the public-private sector partners implementing these programs should articulate the
requirements for standards-based, nationally portable, industry-recognized credentials.
To ensure an educated and skilled workforce for their companies, many industries have
successfully developed and implemented industry-recognized credentials to connect individuals to
the skills they need to enter into and advance in jobs. Most of these industry credentialing
programs are tied to competency models that national industry associations are issuing to help
businesses identify workers who possess the skills and competencies necessary to perform in highgrowth occupations. The type, scope, use, and delivery of these credentials are as diverse as the
industries that employ them. The commonalities that exist within the wide range of industry
credentials include national portability, a foundation in industry-developed standards, and
recognition by industry – attributes that contribute to their labor market and consumer value.

As one of several examples, the National Network of Business and Industry Associations, which is
managed by the Business Roundtable and includes 25 national trade/industry associations, has
articulated the requirements for and attributes of standards-based, nationally portable, industryrecognized credentials, which the public-private sector partners implementing IndustryRecognized Apprenticeship programs could use as part of their review.
Recommendation 5: Strategies for Affordability
As Industry-Recognized Apprenticeship program Federal partners, the U.S. Departments of
Labor and Education should implement and/or support strategies for making technical
instruction more affordable for apprentices and employers by:

A. Partnering with virtual learning providers to expand the reach and reduce the costs of
technical instruction;
B. Identifying or producing foundational, core curriculum in each sector and “open
sourcing” it for learning providers; and
C. Where duplications are evident, cease federally funding development of duplicative
curriculum or assets.
As the Industry-Recognized Apprenticeship program differentiates itself from the Registered
Apprenticeship program, the technical instruction must be competency-based, not seat-time based,
and must be directly aligned with knowledge, skills, and abilities needed on the job. The instruction
also must be more readily available to new apprenticeship participants. Participants must be able
to progress at their own pace suited to their personal learning styles, so the training is more
efficient and tailored to individual needs and employer requirements. Having virtual learning
options, e.g., platforms, providers, etc., will help ensure the Industry-Recognized Apprenticeship
program remains flexible, agile, and attuned to working learners’ needs.

It also should be recognized that in virtually every industry sector, there are some core underlying
employability skills, foundational processes, and technologies that merit the creation of
24

foundational, core curriculum which could be “open-sourced” for an array of learning providers,
ultimately saving duplicative development costs at multiple institutions or by multiple providers.
Recommendation 6: Identification and Availability of Capacity-Building Resources
The Federal Government should identify and make available capacity-building resources for
Industry-Recognized Apprenticeship program certifying organizations to ensure they are
equipped to provide quality services in support of Industry-Recognized Apprenticeships, and
for institutions of higher education, other service providers, and employers to partner in
planning for and building needed capacity. The Registered Apprenticeship program should be
reformed to modernize the system and encourage greater employer and industry sector
involvement.
Many employers and industry organizations today report that the uneven interpretation of
guidelines and regulations by the workforce development system makes it difficult, if not
impossible, for employers to access the relatively limited funding available to support
apprenticeship through the Workforce Innovation and Opportunity Act (WIOA). Sponsors of
apprenticeships must also navigate additional Federal agency structures and processes in order to
access available apprenticeship supportive funding that may be available through the U.S.
Departments of Education, Justice, Veterans Affairs, Agriculture, Defense, Energy, Transportation,
Health and Human Services, and Housing and Urban Development.

As a result, the Task Force urges clarification or alignment of funding availability (or both) via
WIOA, the Carl D. Perkins Career & Technical Education Act, Federal Work-Study, and/or the
Federal Pell Grant Program, at a minimum. This subcommittee also urges consideration of use of H1B resources for competitive grants to partner business organizations and learning providers to
support the development of American talent via non-redundant, competency-based educational
pathways that include integrated work experience.

25

Attracting Business to Apprenticeship
The Subcommittee on Attracting Business to Apprenticeship was charged with
recommending actions or initiatives that industry or government or both can take
to attract more employers from a diverse set of industries to apprenticeship.
Further, this subcommittee was asked to recommend strategies for growing
apprenticeship to scale more rapidly, in particular by establishing and attracting
more businesses to Industry-Recognized Apprenticeship.
A unique and critical element of apprenticeship is the requirement that the
apprentice is employed in the job for which he or she is training, with the
expectation of continuing in that job upon completion of the program. Therefore,
in order to grow apprenticeship more rapidly, more employers must be attracted
to serve as sponsors and to value apprenticeship-related credentials in the
employers’ hiring, promotion, and talent management policies and strategies.
According to the Bureau of Labor Statistics, U.S. businesses will need to fill 18.7
million job openings by 2026. 29 As today’s labor shortages demonstrate, it is
foolish to assume that current training models are suited to preparing workers for
these jobs, let alone tomorrow’s “new collar” jobs. 30 The need for postsecondary
education is a common element across industries and occupations: 65 percent of
all replacement jobs and 85 percent of all new jobs will require some level of
postsecondary education. However, the traditional 4-year education model often
is disconnected from business needs and not suited for providing workers the
combination of skills and practical work experience that employers value. Today,
there are over 500,000 technology jobs open, but U.S. colleges and universities
produce only 50,000 graduates each year, creating a shortfall in skilled candidates
across economic sectors.
Apprenticeships provide businesses and educational institutions a proven, but
underused, partnership model to develop a skilled, flexible, and mobile workforce
that will meet businesses’ current needs, be prepared to adapt to tomorrow’s
needs, and alleviate workforce shortages.
29 U.S. Department of Labor, Bureau of Labor Statistics, Employment Projections,
https://www.bls.gov/emp/ep_table_102.htm (last accessed May 3, 2018).
30 Board of Governors of the Federal Reserve System, Beige Book (Mar. 7, 2018),
https://www.federalreserve.gov/monetarypolicy/beigebook201803.htm (last accessed May 3, 2018).

26

As the Federal Government establishes a new institutional foundation for
American apprentices, it is critical to foster increased business investment in
apprenticeships by building robust financial and technical tools to incentivize and
streamline the use of apprenticeship, strengthening our collective understanding
of workforce needs, and creating a comprehensive online platform to disseminate
resources and tools targeted to business. There should be clearly defined
incentives for employers who choose to participate.
Recommendation 7: Improved Risk-Sharing Tools and Streamlined Processes to Manage Them
The Industry-Recognized Apprenticeship program should streamline and simplify program
funding through the following:
A. Updating Federal funding criteria to ensure equal treatment of Registered
Apprenticeship and Industry-Recognized Apprenticeship programs, encourage the
development of apprenticeship programs both for new hires and incumbent workers,
and encourage reallocation of State resources;
B. Streamlining State grant access by creating a single apprenticeship program
application;
C. Exploring sector-led financial options to help scale Industry-Recognized Apprenticeship
programs and Registered Apprenticeship programs. Examples include new models of
public/private partnership, income sharing agreement models with private sector
capital, and others that can be developed across sectors.
D. Evaluating all Federal Government workforce development programs according to a
robust set of criteria and realign funding for underperforming programs to IndustryRecognized Apprenticeship programs as a strategy to kick start the adoption of the
model across industry sectors.
Launching new apprenticeship programs requires companies to make a significant resource
commitment and assume long-term risks to build out new recruiting and training models. A longterm focus does not necessarily mean that programs are long or costly; in fact, apprenticeship
programs vary significantly in length and cost. According to a 2016 joint study by the U.S.
Department of Commerce and Case Western Reserve University, “the longest program studied
lasted more than four years; the shortest, one year, and costs range from $25,000 to $250,000 per
apprentice. In addition to labor costs, other apprenticeship program costs included program startup, tuition and educational materials, mentors’ time and overhead.”

As Federal and State Governments promote apprenticeships, they need to ensure that existing
financial programs are aligned with current apprenticeship policy and that businesses know how to
access them.

According to recent research by the U.S. Government Accountability Office (GAO), there are more
than 40 workforce development programs across nine Federal agencies. 31 Data shows that these

U.S. Government Accountability Office, Multiple Employment and Training Programs – Providing
Information on Colocating Services and Consolidating Administrative Structures Could Promote Efficiencies,
31

27

programs were funded with more than $42 billion, although less than half that amount ($17 billion)
went to employment and training activities. Based on this data, there is a clear need to streamline
and simplify programs by developing an organized approach that recognizes and preferentially
funds apprenticeship.

In order to simplify and emphasize apprenticeship funding, Federal funding criteria should be
updated to ensure that Registered Apprenticeship and Industry-Recognized Apprenticeship
programs are treated equally, encourage the development of apprenticeship programs for both new
hires and incumbent workers, and encourage the reallocation of State resources to apprenticeship.
Recommendation 8: A Robust Needs Analysis to Narrow Down the Areas of Most Acute Skills
Shortage
Businesses and policymakers lack information about skills shortages in individual companies and
across the economy – that is, on the gap between workforce needs, available labor supply, and
education and training programs. Businesses, especially those without dedicated HR staff, may not
know how to conduct a needs assessment, let alone how to connect the needs identified to the
development or adoption of work-based learning programs.

At the same time, businesses are unclear about the solutions apprenticeship can offer to common
labor challenges. They lack information on how apprenticeships can be created to broaden their
recruiting pool and potentially lower recruiting cost. Apprenticeships also allow companies to
diversify their workforce by reaching pools of candidates that companies previously had not
considered as well as upskilling incumbent workers, effectively creating new career paths for longtenured workers whose prior jobs have changed due to technology or other factors. According to
the U.S. Department of Labor, 91 percent of apprentices retain employment after the program ends
– a data point that is highly attractive to employers.
Via the U.S. Department of Labor apprenticeship website, the Department should include a needs
analysis adaptable to businesses of all sizes and catered to priority Industry-Recognized
Apprenticeship program sectors, as cited in the E.O. and the President’s 2019 budget.

The Bureau of Labor Statistics and the U.S. Census Bureau should develop a joint project to measure
businesses’ skills shortages and training investments through existing survey, administrative, and
third-party data. The Bureau of Labor Statistics should develop a supplement to the Job Openings
and Labor Turnover Survey, and the U.S. Census Bureau should develop a module to the new
Annual Business Survey as potential new survey vehicles.
The U.S. Department of Labor’s Office of Apprenticeship should establish a partnership with the U.S.
Census Bureau to research and publish metrics on the long-term employment outcomes and
retention of apprentices relative to other workers. This project could build upon an existing joint
project between the U.S. Census Bureau, the National Association of Manufacturers, and the
National Skills Clearinghouse.
Industry associations should be encouraged to play a critical role in gathering data from sector

GAO-11-92 (January 2011), available at https://www.gao.gov/new.items/d1192.pdf (last accessed May 3,
2018).
28

employers. As a means of evaluating effectiveness and broadening awareness, associations could
produce sector-wide case studies to help companies quantify the return on investment for both
apprenticeship programs and other training programs where employer dollars are being spent. As
companies and trade associations gather this return on investment data, the Federal Government
should enable the dissemination of this information, as well as other aspects of a well-rounded
return on investment, including incentives, recognitions by the U.S. Department of Labor, and the
applicability of Registered Apprenticeship and Industry-Recognized Apprenticeship program
experience to college credit or articulation.

To allow widespread adoption of apprenticeship, certifiers of Industry-Recognized Apprenticeship
programs should keep consistent data and metrics as established by the U.S. Department of Labor
to indicate their program success, as well as showcase proof of concept to enable industry
expansion.
Recommendation 9: Centralized Apprenticeship Resources
For many organizations, the creation of an in-house apprenticeship program is daunting.
Apprenticeship is considered a highly structured, expensive, and long-term commitment by
companies and candidates alike. In times of quick economic shifts and pressure on quarterly
earnings, it is difficult to garner leadership support for a long-range workforce development effort.

What many employers do not consider is that, according to the Center for American Progress, “86
percent of Registered Apprenticeship sponsors in the United States say they would strongly
recommend hiring an apprentice, in addition to the 11 percent who say they would recommend
Registered Apprenticeship with some reservations. All told, a total of 97 percent of sponsors in the
United States recommend apprenticeship programs.” 32 It is as close to a “sure bet” in talent
development as we have.

Much of the hesitation on the part of the private sector to embark on apprenticeship program
development is due to the lack of a single, online community for apprenticeships targeted to
businesses, as well as to educational institutions and workers. As a first step to creating this
community, the U.S. Department of Labor, in partnership with the U.S. Departments of Commerce
and Education and with industry groups, should compile the best existing information available to
companies on apprenticeship. The U.S. Department of Labor’s Apprenticeship Toolkit is an excellent
starting point for basic information on apprenticeship. 33 However, the launch of the IndustryRecognized Apprenticeship program has created the need and opportunity for a robust, centralized
site to attract and bring together more employers to create apprenticeships.

S.A. Steinberg & B. Schwartz, Center for American Progress, The Bottom Line: Apprenticeships Are Good for
Business (July 14, 2014),
https://www.americanprogress.org/issues/economy/news/2014/07/14/93768/the-bottom-lineapprenticeships-are-good-for-business/ (last accessed May 3, 2018).
33 U.S. Department of Labor, supra note 6.
32

29

These resources should include:

A. The Apprenticeship Playbook 34;

B. The Benefits & Costs of Apprenticeship: A Business Perspective 35;

C. Industry-developed occupational competencies;

D. Industry-developed, competency-based apprenticeship standards;

E. Curricula that align with those standards (made available through a central provider or a
network of providers);
F. Instruction and resource guides for trainers/educators;

G. Instruction and resource guides for mentors;

H. Resources on how to develop online learning programs that can be used to complement or
replace traditional classroom training, when appropriate;

I.

J.

National certification for Industry-Recognized Apprenticeship programs and Registered
Apprenticeship programs;

Research that assesses the effectiveness of various models of work-based learning; and

K. Detailed company case studies spanning industries targeted for apprenticeship expansion,
such as manufacturing, health care, and cybersecurity.

34 Advanced Manufacturing Partnership 2.0, Employer’s Playbook for Building an Apprenticeship Program,
available at
http://www.themanufacturinginstitute.org/~/media/53456D700856463091B62D1A3DA262F4/Full_Appre
nticeship_Playbook.pdf (last accessed May 3, 2018).
35 U.S. Department of Commerce, supra note 27.

30

Expanding Access, Equity, and Career Awareness
The Subcommittee on Expanding Access, Equity, and Career Awareness was
charged with recommending steps that could be taken to reduce the
stigmatization of non-college pathways, broaden awareness of the many different
kinds of careers that pay a family-sustaining wage, expand access to
apprenticeship, and ensure equity of opportunity to prepare for those jobs and
careers.
In order for apprenticeship to meet current and future workforce demands, it
must attract employers and qualified apprentices who see this form of
postsecondary education and training as the preferred pathway to an exciting and
financially rewarding career. Potential apprentices must be made aware of the
large number of careers and career pathways available to them through
apprenticeship, and we must ensure that all Americans have equal access to these
opportunities.
Multiple on-ramps must be created to build an American talent pool for industry.
To that end, all Americans must have an opportunity to participate in the
Industry-Recognized Apprenticeship program, a new apprenticeship model.
Additionally, the responsibility to make the Industry-Recognized Apprenticeship
program effectively inclusive must be shared by the key stakeholders (e.g.,
sponsors and certifiers) and the U.S. Departments of Labor and Education,
respectively. This inclusion should involve community-based organizations
functioning as national intermediaries or within local markets. Community-based
organizations represent a tested methodology for reaching populations that have
historically faced barriers to employment, such as women, people of color, and
individuals with disabilities.
Recommendation 10: Building Brand Awareness of Apprenticeship through a Multi-Faceted
Campaign Will Promote Faster, More Respected, and More Diverse Pathways to Employment
To realize the full benefits of Industry-Recognized Apprenticeship programs, the Federal
Government should invest in the development and deployment of a multi-faceted campaign of
awareness to multiple stakeholders such as industries, employers, educators, counselors,
workforce development practitioners, and potential apprentices. For the campaign to be effective,
these stakeholders cannot be passive recipients of the message; they must also become conduits of
message delivery.
P a g e | 31

This should be done through the following:

The Federal Government should provide financial support to online campaigns that use high impact
digital and social media vehicles that speak to multiple generations.
Apprenticeships should be promoted as a positive earn-and-learn pathway that can benefit new
and current employees seeking to move up career ladders. This could be realized by the utilization
of all Federal funding mechanisms to ensure both the traditional trades, as well as non-traditional
industry sectors, are engaged through apprenticeship.

The Federal Government should fund the research and promotion of the findings of the monetary
return on investment of employing and training American apprentices through the Registered
Apprenticeship program, Industry-Recognized Apprenticeship program, and other industry-based
programs.
Recommendation 11: The Federal Government Has Acknowledged the Necessity of
Apprenticeship Programs as a Model That Can Expand Pathways of Opportunity and
Incentivize Utilization of an Earn and Learn Model for Both the Employer and Apprentice

A. To realize the full benefits of Industry-Recognized Apprenticeship programs, the
subcommittee recommends the following: Federal investment to specifically expand
and support pre-apprenticeship activities in middle and secondary schools for career
and technical education and/or other educational certificates;
B. Examination and reduction of barriers that exist around reciprocity of industryrecognized credentials;
C. Promotion of the use of technology for all learners to access information about
industry-approved apprenticeship programs early on in their education;
D. Streamlined credit for prior learning and/or work experiences to accelerate the time to
full employment; and
E. Development of linkages for digital platforms and/or social media channels where
employers and potential apprentices can more easily connect.
Recommendation 12: Ensuring Equity
Equal access to employment opportunities will be a defining element of the Industry-Recognized
Apprenticeship program. Equity is about ensuring that each American has equal access and
opportunity to the benefits of apprenticeship and employment. In some cases, regulatory
benchmarks are important, but can prevent industries from participating due to burdensome
compliance or overly bureaucratic or inconsistent processes.

To that end, the U.S. Department of Labor should implement clear guidelines that reinforce the
principles of equity and define certifier, sponsor, and Office of Apprenticeship responsibilities. The
U.S. Department of Labor should continue funding community-based organization efforts to expand
access to populations who have historically suffered from unequal access to and underutilization of
Registered Apprenticeship programs, and to expand funding to Industry-Recognized
Apprenticeship programs. In addition, certifiers and sponsors should develop comprehensive
outreach strategies to reach diverse populations.
P a g e | 32

Recommendation 13: Improvements to Existing Registered Apprenticeship Program
Registered Apprenticeship has been a viable tool for decades. Notwithstanding its utility, potential
industry operators and others have identified several concerns regarding the operational efficiency
and/or bureaucratic nature of Registered Apprenticeship. The U.S. Department of Labor should vet
these concerns and where such vetting bears out the validity of the concerns, the Department
should take available legislative and regulatory actions to improve and preserve the Registered
Apprenticeship system.

P a g e | 33

Administrative and Regulatory Strategies to Expand Apprenticeship
The Subcommittee on Administrative and Regulatory Strategies to Expand
Apprenticeship was charged with making recommendations regarding the
structure of the new Industry-Recognized Apprenticeship program, the processes
for identifying qualified third parties to recognize high-quality programs, and the
overarching guidelines for ensuring that Industry-Recognized Apprenticeships
meet industry-relevant quality standards. Further, the subcommittee was asked
to identify administrative or regulatory provisions that would encourage more
industries and employers to participate in apprenticeship and to more efficiently
take apprenticeships to scale.
Apprenticeship provides a well-proven mechanism to prepare individuals for
career entry and career mobility, but the Registered Apprenticeship program has
been the only option for employers seeking government approval and access to
government funding. Many employers elect to establish apprenticeship programs
outside of the Registered Apprenticeship program, in part because of the
paperwork and bureaucracy involved in registering a program, especially for
employers with a national presence that would need to work with both Federal
and State representatives to gain program approval. In addition, there is
insufficient flexibility in program requirements within the Registered
Apprenticeship program to meet the varying needs of different industries.
Industry-recognized apprenticeships provide a new apprenticeship pathway that
gives industry organizations and employers more autonomy and authority to
identify high quality apprenticeship programs and opportunities.
Industry Recognized Apprenticeship Program Implementation Questions and
Recommendations
General
Recommendation 14: Pilot Project
The Industry-Recognized Apprenticeship program should begin implementation with a pilot
project in an industry without well-established Registered Apprenticeship programs. This
would test the process for reviewing certifiers and would help the Federal Government better
understand how to support industry groups working to develop standards and materials for
Industry-Recognized Apprenticeship programs.

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Several Task Force members have expressed interest in beginning pilot programs in their industry
sectors as soon as the U.S. Department of Labor can begin the implementation process.
Recommendation 15: Industry Sector Standards
Industry-recognized apprenticeship programs should focus on mastery and competency, not
just seat-time or training hours. Sectors should set standards based on industry needs.
Different requirements may be established in technical vs. professional occupations within
sectors.
Different industry sectors are expected to develop different apprentice training standards based
upon the needs of employers within these industries. The U.S. Department of Labor’s IndustryRecognized Apprenticeship program implementation guidelines should allow for flexibility in
determining these standards.
Recommendation 16: Standards and Guidelines
The U.S. Department of Labor Industry-Recognized Apprenticeship program implementation
guidelines should spell out the quality standards for the Industry-Recognized Apprenticeship
programs and require that industry groups describe in detail the structured learning
experience that is at the heart of every apprenticeship program.
Fundamental to the success of apprenticeship is a well-designed and highly structured work
experience. This is where most learning takes place. Industry-Recognized Apprenticeship program
standards and quality guidelines must support this structured learning experience, as well as
ensure the safety of apprentices and their coworkers.
Recommendation 17: Inapplicability of the Davis-Bacon Act
Industry-recognized apprenticeship program participants cannot be considered as
apprentices for the purpose of meeting the Davis-Bacon Act wage requirements.
This recommendation is specific to the construction industry.
Recommendation 18: Inapplicability of Wage Progression Rules
Industry-recognized apprenticeship programs are not required to follow specific wage
progression rules but should make clear to apprentices what wages they will be paid and
under what circumstances wages will increase.
Industry-Recognized Apprenticeship program guidelines should specify that apprentices have
detailed and up-to-date information regarding the wage structure for the duration of their
apprenticeship and opportunities for advancement in their respective industries.

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Because the new Industry-Recognized Apprenticeship and Registered Apprenticeship programs
will be parallel and complementary apprenticeship systems, the members of this subcommittee
believe that their simultaneous reform and launch could create uncertainties for companies, trade
or industry groups, educational institutions, labor unions, and other key stakeholders, which could
slow the needed expansion of apprenticeships in the United States. Our recommendations highlight
key questions for the Administration to address in the Industry-Recognized Apprenticeship
program implementation process. We have categorized these questions into three areas:
governance, reporting requirements, and the Industry-Recognized Apprenticeship program
certification process.
Governance
Recommendation 19: Multiple Associations in a Single Industry Sector
The U.S. Department of Labor should solicit proposals for governing or oversight bodies that
include multiple trade or business associations within an industry sector. This governing body
should be required to reach agreement on certification standards as a criterion for the
Department’s approval. Leadership of this governing body should rotate on an annual basis
between members to ensure a balanced perspective over time.
This recommendation is intended to address the following questions: What will the U.S.
Department of Labor do if there are multiple trade or business associations within an industry
sector and they develop conflicting or inconsistent industry standards? What safeguards will be put
in place to prevent conflicts of interest on the part of certifiers that are also membership
organizations?
Recommendation 20: Credentialing Standards
Industry-based governing bodies, in consultation with the U.S. Department of Labor, should be
responsible for developing the Industry-Recognized Apprenticeship program credentialing
standards, as well as confirming that these standards are achieved through the work-based
learning and related technical instruction requirements. Industry-based governing bodies
should be able to influence or negotiate with employers and colleges to partner on transfer or
credit agreements before verification of the credentialing standard.
This recommendation is intended to address the following question: How will trade associations
and industry groups who do not have expertise in developing curricula negotiate college credit on
behalf of their members? Colleges control prior learning assessment and transfer of credit issues,
and while certifiers could encourage partnerships between employers and colleges, they could not
enforce these partnerships or prior learning credit agreements.

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Recommendation 21: State Agency-Administered Training Funds
The U.S. Department of Labor should clarify whether training funds are available for the
Industry-Recognized Apprenticeship programs and, if training funds will be available, how
these training dollars will be distributed to credentialing bodies. Given that the new IndustryRecognized Apprenticeship programs should require consistency in credentialing standards
within industry sectors and uniform reporting requirements at the State and Federal levels,
States should be able to distribute federally funded, State-administered grant funds, consistent
with funding guidance.
This recommendation is intended to address the following questions: How will State
Apprenticeship Agencies interact with the Industry-Recognized Apprenticeship programs? Can
States distribute Federally funded, State administered grant funds to sponsors or participants in the
Industry-Recognized Apprenticeship system?
Reporting Requirements
Recommendation 22: Performance Reporting Requirements
The new Industry-Recognized Apprenticeship system should have a single reporting platform
that is utilized at both the State and Federal levels. Funding may need to be available for State
efforts to align to the Department’s designed reporting platform.
This recommendation is intended to address the following question: What systems will the U.S.
Department of Labor put in place to collect and verify outcomes data for Industry-Recognized
Apprenticeship programs?
Certification Process
There are several process-related questions that will need to be answered once the scope of the
Industry-Recognized Apprenticeship system is finalized. Among these questions are the following:

A. How will the U.S. Department of Labor differentiate between high/low quality certifiers,
especially since no potential certifiers will have prior experience administering an IndustryRecognized Apprenticeship program?

B. How often will certifiers be reviewed, and under what conditions would the positive
recommendation be removed?

C. What does it mean for a certifier to be “recommended” by the Department?

D. How will the Department differentiate between high value and low value credentials?
E. What constitutes “sufficient support and input from sector participants” for potential
Industry-Recognized Apprenticeship program certifiers?

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Registered Apprenticeship Program Recommendations
In its deliberations on ways to expand apprenticeships in the United States, the members of the
Subcommittee on Administrative and Regulatory Strategies also discussed several administrative
reforms and changes that could be made to the Registered Apprenticeship system that would also
expand apprenticeship utilization in the United States. The specific reforms discussed by the
subcommittee included changes to WIOA, the Employee Retirement Income Security Act of 1974,
and wage and hour laws. Among these recommendations are the following:
Recommendation 23: WIOA Waivers and Set-Asides
WIOA should include waivers/set-asides to make it easier for sponsors to receive WIOA
funding, allowing sponsors to serve incumbent workers moving up the career ladder.
Recommendation 24: WIOA Performance Measures – Earnings
WIOA outcome measures must take into account that apprentices are employed from the start
of programs, so pre- and post-program earnings may appear to be smaller than for other
programs designed to serve those unemployed until their program is over.
Recommendation 25: WIOA Performance Measures – Time to Completion
WIOA outcome measures must recognize that apprenticeships take longer to complete, and
persistence in an apprenticeship program, earning credentials, and moving through wage
progression schedules should serve as positive interim outcomes.
Recommendation 26: Wage and Hour Rules
Wage and hour rules should be reformed to allow apprentices under 18 to work on the
manufacturing floor, use hoists and lifts in healthcare settings, use power tools and
equipment, etc., when properly supervised – only in non-high-risk occupations. Since
apprentices are paid a wage, they are prohibited from participating in these activities.

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Conclusion
The Task Force brought together business, labor unions, trade and industry groups, nonprofit
organizations, educational institutions, and public officials to answer the President’s call to discuss
various perspectives and make recommendations on how to design and grow high-quality
Industry-Recognized Apprenticeship programs that can help expand educational pathways to
successful careers and better support American business in today’s modern economy. Alongside the
President, and Secretaries Acosta, DeVos, and Ross, the Task Force recognizes the historical
significance of this focus on expanding and promoting apprenticeships in America, as it is an
opportunity to make a difference for business and industries, as well as young students and lifelong
learners to ensure they are prepared for the jobs of today and tomorrow. Implementation of these
recommendations will begin to break down the silos that currently exist between traditional
education and workforce learning, with the goal of creating and nurturing a flexible and thriving
American workforce capable of responding to the needs of an increasingly dynamic American
economy.

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Appendices
Glossary
Apprenticeship
An arrangement that includes a paid-work component and an educational or instructional
component, wherein an individual obtains workplace relevant knowledge and skills.
Blended Learning
Multiple learning modes are available to engage an individual, including theory-based
classroom instruction, simulations and online or distance learning, and other innovative
learning modes. This is coupled with, and supplemented by, performance-based or “handson” learning in the work environment.
Credit for Prior Knowledge & Experience
Individuals who have developed knowledge and skills through prior educational and work
experience can receive credit for their demonstrated abilities.
Industry-Recognized Apprenticeship
A high-quality apprenticeship program that includes a paid-work component and an
educational or instructional component, wherein an individual obtains workplace-relevant
knowledge and skills. Programs will be developed by third parties that may include trade
and industry groups, companies, non-profit organizations, unions, and joint labormanagement organizations. Developed programs are those that can be certified as a highquality program by a third-party certifier that has received favorable determination from the
U.S. Department of Labor.
Industry Skill Standards & Credentials
Curriculum/training is based on industry skill standards, while third-party assessments
(including industry credentials) measure and acknowledge individual proficiency.
Job Training Programs
A Federal program designed to promote skills development or workplace readiness and
increase the earnings or employability of workers, but does not include Federal student aid
or student loan programs.
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Mentorship
Employer mentors support an individual during his/her work-based learning experience,
providing guidance on company culture, specific position functions, and workplace policies
and procedures. In many cases, mentors help develop learning objectives for a mentee and
assist in measuring his/her progress and proficiency.
Paid-Work Experience & Advancement Opportunity
An individual will earn a wage during the work based learning portion of the program. Work,
full or part-time, is usually paid and tied to an academic credit from a secondary or
postsecondary school partner. Wages/workplace responsibilities will often increase at
defined milestones as determined by an employer based on the individual’s advancement.
Program Completion Certificates
Individuals who complete the program receive nationally portable, industry-recognized
credentials, program certificates, and/or degrees that have demonstrable consumer and
labor market value.

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Task Force Charter
U.S. Department of Labor
Task Force on Apprenticeship Expansion Advisory Committee Charter

1. Committee's Official Designation:
Task Force on Apprenticeship Expansion (hereinafter "the Task Force" or "the panel.")

2. Authority:
The Task Force is authorized pursuant to section 8 of Executive Order 13801, entitled
"Expanding Apprenticeships in America" (hereinafter "the Executive Order"), issued on
June 15, 2017 (82 Fed. Reg. 28229), which directs the Secretary of Labor to establish and
chair such a Task Force in the U.S. Department of Labor. The Task Force is being
established and will operate in accordance with the provisions of the Federal Advisory
Committee Act (FACA), as amended, 5 U.S.C. App. 2, and its implementing regulations
(41 CFR 101- 6 and 102- 3).

3. Objectives and Scope of Activities:
As stated in section 8(b) of the Executive Order (and as elaborated in the "Description of
Duties" section of the Charter below), the Task Force is being established by the
Secretary of Labor for the purpose of identifying strategies and proposals to promote
apprenticeships, especially in sectors where apprenticeship programs are insufficient.
Upon completion of its duties, the Task Force will transmit to the President a report
recommending strategies and proposals to foster the expansion of apprenticeships in the
United States.

4. Description of Duties:
Section 2 of the Executive Order sets forth the following general policy directive with
respect to the promotion of apprenticeships:
It shall be the policy of the Federal Government to provide more affordable
pathways to secure, high-paying jobs by promoting apprenticeships and effective
workforce development programs, while easing the regulatory burden on such
programs and reducing or eliminating taxpayer support for ineffective workforce
development programs.
Under section 8(b) of the Executive Order, the Task Force is charged with the mission of
identifying strategies and proposals to promote apprenticeships, especially in sectors
where apprenticeship programs are insufficient. Upon completion of this assignment, the
Page 1 of 5

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Task Force shall submit to the President a report which details these strategies and proposals.
Pursuant to the Executive Order, the report must specifically address the following four topics:

•
•

•

•

Federal initiatives to promote apprenticeships;

Administrative and legislative reforms that would facilitate the formation
and success of apprenticeship programs;

The most effective strategies for creating industry-recognized
apprenticeships; and

The most effective strategies for amplifying and encouraging privatesector initiatives to promote apprenticeships.

The Task Force is solely advisory in nature, and will consider testimony, reports,
comments, research, evidence, and existing practices, as appropriate, to develop
recommendations for inclusion in its final report to the President.

As soon as practicable, the Task Force shall prepare an interim report for the Chair, which
details the progress made towards the development of apprenticeship-related proposals and
strategies, and which identifies areas requiring additional research and discussion by the
panel. It is expected that this interim report will be transmitted to the Chair within six
months after the date of the filing of this Charter.

5. Agency or Official to Whom the Task Force Reports:
The Task Force, through its Chair, will transmit its final report to the President of the United
States.

6. Support:
Pursuant to section 8(c) of the Executive Order, the U.S. Department of Labor shall provide
administrative support and funding for the Task Force, to the extent permitted by law and
subject to the availability of appropriations. Within the Department of Labor, the
Employment and Training Administration is the agency that has been designated to provide
the Task Force with such administrative services, funds, staff, equipment, and other support
services as may be necessary to carry out its mission to the extent permitted by law and
within existing appropriations.

7. Estimated Annual Operating Costs and Staff Years:
As noted below in the "Membership and Designation" section of the Charter, the
Secretaries of Commerce and Education shall serve as Vice Chairs of the Task Force. However, in
keeping with the requirements set forth in section 8(c) of the Executive Order, and in order to
ensure that the operations of the Task Force are conducted in an administratively efficient

manner, the U.S. Department of Labor's Employment and

43

Training Administration will assume full responsibility for all staffing needs and operational
costs associated with the functioning of the Task Force. Accordingly, the
U.S. Departments of Commerce and Education will not be contributing any staff or operational
funding towards the administration of the Task Force.
FTE: 1.5 staff years

$200,000

Travel for Non-Federal Members

$120,000

Payments to Federal Staff

$248,000

Payment to Meeting Logistics Contractor/Consultant/Experts

Travel for Meeting Logistics Contractor/Consultant/Experts Other
TOTAL

$ 50,000
$ 60,000

$678,000

8. Designated Federal Officer (DFO):
The Assistant Secretary for the Department of Labor’s Employment and Training
Administration (or his/her designee) will serve as the DFO for the Task Force. In the
absence of the Assistant Secretary, the Secretary of Labor may appoint an interim DFO.
The DFO, as required by FACA, will approve and call all Task Force committee and
subcommittee meetings, prepare and approve all meeting agendas, attend all Task Force
committee and subcommittee meetings (or designate someone to attend in his or her stead),
chair meetings when directed to do so by the Chair of the Task Force, adjourn any meeting
when the DFO determines adjournment to be in the public interest, assemble and maintain the
reports, records, and other papers of the Task Force, and carry out the provisions of the
Freedom of information Act (FOIA) (5 U.S.C. 552) with respect to the Task Force reports,
records, and other papers. In the DFO's discretion, the DFO may request the assistance of
other Federal employees as support staff to assist the DFO in fulfilling these responsibilities.

9. Estimated Number and Frequency of Meetings:
The Chair of the Task Force (or his or her designee) shall determine when the panel will
meet. It is anticipated that the Task Force will conduct approximately two to four meetings
(virtually or in person) per year, as time and resources permit.

10. Duration:
The Task Force will not be continuing in nature. While the Executive Order does not set forth
a definite time frame by which the panel must complete its final report, the duration of its
existence is expected to be less than two years. The Charter of the Task Force is subject to
renewal every two years pursuant to the requirements of the FACA.

44

11. Termination:
Pursuant to section 8(h) of the Executive Order, the Task Force shall terminate 30 days after it
submits its final report to the President.

12. Membership and Designation:
Representation - Pursuant to section 8(d) of the Executive Order, the Secretary of
Labor shall serve as the Chair of the Task Force. The Secretaries of Education and
Commerce shall serve as Vice-Chairs of the Task Force. The Secretary of Labor
shall appoint the representative members of the Task Force, which shall consist of no
more than 20 individuals who work for or represent the perspectives of trade and
industry groups, companies, non-profit organizations, unions, joint labormanagement organizations, educational institutions, state or local governments, and
such other persons as the Secretary of Labor may from time to time designate. The
Task Force's members shall include distinguished citizens from outside the Federal
Government with relevant experience or subject-matter expertise concerning the
development of a skilled workforce through quality apprenticeship programs.
Pursuant to section 8(g) of the Executive Order, a member of the Task Force may
designate a senior member of his or her organization to attend any Task Force
meeting.

.

Membership on the Task Force will be balanced. Members will come from a cross­ section
of those directly affected, interested, and qualified as appropriate to the nature and functions
of the Task Force. The composition of the Task Force will depend upon
several factors, including: the Task Force's mission; the geographic, ethnic, social, or
economic impact of the Task Force's mandate; the types of specific perspectives required;
the need to obtain divergent points of view on the issues before the Task Force; and the
relevance of State, local, or tribal governments to the development of the Task Force's
recommendations.
Terms of members - The Executive Order does not set forth a definite time frame by
which the Task· Force must complete its development of apprenticeship­ related
strategies and proposals and submit its final report to the President of the United
States. Accordingly, each member of the Task Force shall serve at the pleasure of the
Secretary of Labor for a term that will cease 30 days after the delivery of the Task
Force's final report to the President, at which time the Task Force will be officially
disbanded in accordance with section 8(h) of the Executive Order. The Secretary of
Labor may also appoint members to fill any vacancies that may emerge while the
Task Force is in existence.
Compensation of Task Force Members - Pursuant to section 8(t) of the Executive
Order, members of the Task Force shall serve without additional compensation for
their work on the Task Force, but shall be allowed travel expenses, including per
diem in lieu of subsistence, to the extent permitted by law for persons serving
intermittently in the Government service (5 U.S.C. 5701 -

45

5707), consistent with the availability of funds.
Consultation with Experts - To assist the Task Force in fulfilling its
responsibilities and meeting its objectives, the panel will consult with experts
from business, industry, labor organizations, community organizations, State and
Federal agencies, and others as appropriate.

13. Subcommittees:
The Chair shall have the authority to create Task Force subcommittees as needed.
All subcommittees must always report back to the full Task Force, and must not
provide advice or work products directly to any Federal agency or official on
behalf of the Task Force.

14. Recordkeeping:
The records of the Task Force shall be handled in accordance with General Records
Schedule 6.2, Federal Advisory Committee Records, and the approved agency records
disposition schedule. These records shall be available for public inspection and copying
subject to the FOIA.

15. Filing Date:
This Charter is filed on the date indicated below:

46

Task Force Member Bios
Michael Bellaman, President and CEO, Associated Builders and Contractors (ABC)
Mr. Bellaman has lengthy experience in the construction industry and continual leadership on
workforce development, safety, and building careers. In his current role, Mr. Bellaman oversees a
membership of more than 21,000 construction and industry-related firms that include both large
and small contractors. He oversees a nationwide network of training programs that share a goal of
growing the number of skilled tradesmen and women. ABC and its members together operate the
most open shop, U.S. Department of Labor Registered Apprenticeship programs in the country. He
is experienced as a project engineer, CDO of a multi-billion-dollar construction company, and
representative of small businesses across the country.

Joshua Bolten, President and CEO, Business Roundtable (BRT)
Josh Bolten is the President & CEO of Business Roundtable, a trade association of 200 CEOs of
leading companies, working to promote a thriving economy and expanded opportunity for all
Americans. Prior to joining Business Roundtable in 2017, Mr. Bolten served as the Managing
Director of Rock Creek Global Advisors LLC, a consulting firm he co-founded. From 2001 to 2009
Mr. Bolten served in the White House under President George W. Bush, as Chief of Staff, Director of
the Office of Management and Budget, and Deputy Chief of Staff for Policy.

Walter Bumphus, President and CEO, American Association of Community Colleges (AACC)
Dr. Bumphus currently serves as President and CEO of the American Association of Community
Colleges, which represents 1,108 community colleges. AACC works with employers, economic
development agencies, workforce groups and related partners across the country to build effective
and efficient talent pipelines. Related to apprenticeship, AACC has supported college engagement,
registration on the Registered Apprenticeship-College Consortium (RACC) site, and coordinated to
showcase the Federal focus on apprenticeship. AACC was also an early partner to establish colleges
as apprenticeship sponsors. AACC provides a unique ability to take recommendations from the
panel and encourage wide scale adoption and implementation. Dr. Bumphus has worked to
encourage community colleges to join the RACC.

Wesley Bush, Chairman, CEO, and President, Northrop Grumman
Mr. Bush is Chairman, CEO, and President of Northrop Grumman Corporation, providing leadership
for the more than 65,000 employees of Northrop Grumman. Mr. Bush serves on the board of
directors of Norfolk Southern Corporation, as well as the boards of several nonprofit organizations,
including the Aerospace Industries Association, Business-Higher Education Forum, Conservation
International, and the U.S. Naval Academy Foundation.
The Honorable Dennis Daugaard, Governor, South Dakota
Mr. Daugaard currently serves as the Governor of South Dakota. Governor Daugaard has
emphasized job creation, sound fiscal management, and efficient government operation. In 2015,
Governor Daugaard assembled the Blue Ribbon Task Force to propose solutions to improve
education in South Dakota. The Task Force put forth recommendations which Mr. Daugaard then
brought as legislation the following session.

47

The Honorable Emily Stover DeRocco, Founder & CEO, E3 Engage Educate Employ
Ms. DeRocco is the founder and CEO of a consulting practice focused on linking education,
workforce, and economic development assets for competitive advantage. DeRocco currently serves
as Director of the National Network of Business and Industry Associations and is an officer and
Director of Education & Workforce for the Detroit-based Manufacturing USA Institute. She is the
immediate past President of The Manufacturing Institute where she launched and implemented a
strategic national agenda on education reform and workforce development, innovation support and
services, and research on behalf of U.S. manufacturers. Previously, Ms. DeRocco was the Assistant
Secretary of Labor for the Employment and Training Administration.

Cari Dominguez, Director, Manpower Inc.
Ms. Dominguez serves on the boards of Manpower Group Inc., Triple-S Management Corporation, a
managed healthcare company, where she serves as Vice Chair of the Board and Independent Lead
Director, and the Calvert Funds. A former Chair of the U.S. Equal Employment Opportunity
Commission (EEOC), her public service includes two Presidential appointments and unanimous
Senate confirmations. She also served in the U.S. Department of Labor in roles including Assistant
Secretary of Labor for Employment Standards and Labor Management, and Director of the Office of
Federal Contract Compliance Programs. She currently serves on the board of the National
Association of Corporate Directors, where she chairs the Nominating and Governance Committee
and is on the faculty of their Board Advisory Services.
Thomas J. Donohue, President and CEO, U.S. Chamber of Commerce
Thomas J. Donohue is President and CEO of the U.S. Chamber of Commerce. Since assuming this
position in 1997, Donohue has expanded the work and influence of the Chamber in the United
States and across the globe. Previously, Mr. Donohue served for 13 years as President and CEO of
the American Trucking Associations, the national organization of the trucking industry. Earlier in
his career, he was Deputy Assistant Postmaster General of the United States and Vice President of
Development at Fairfield University in Connecticut.

Montez King, Executive Director, National Institute for Metalworking Skills (NIMS)
Mr. King is currently the Executive Director of NIMS, a national 501(c)3 that provides world-class,
industry-developed and validated, competency-based skill standards, credentials, and training
frameworks that enable collaboration between educators, manufacturers, policymakers, and
community-based organizations. Over the course of his career, Mr. King has instructed apprentices,
managed apprenticeship programs, and directed national scale credentialing programs while
earning a BS in IT and an ME in Adult Education and Training. Mr. King is an advisor and advocate
of 21st Century training methods that blend pedagogy and andragogy with work-and-learn settings
in an effort to advance U.S. Manufacturing. He represents an extensive stakeholder network of
industry employers, associations, and education training providers, and is a member of the national
Network of Business and Industry Associations.

Andrew Liveris, Chairman and CEO, Dow Chemical Company
Mr. Liveris is Chairman and Chief Executive Officer of The Dow Chemical Company and a director
and former Executive Chairman of DowDuPont. A recognized global business leader with more than
40 years at Dow, Liveris advocates the criticality of manufacturing worldwide. He has been tapped
by President Donald J. Trump to help find ways to spur innovation, revitalize the U.S. manufacturing
sector, and drive economic growth and prosperity with a particular focus on workforce
development. Previously, he served as Co-Chair of the prior administration’s Advanced
Manufacturing Partnership and as a member of the President’s Export Council. He sits on the Board
of Directors of IBM, WILL ASSUME HIS POSITION ON THE BOARD OF Saudi Aramco IN JULY, is Vice
48

Chair of the Business Roundtable, and is an Executive Committee member and past Chairman of the
U.S. Business Council.

Katherine Lugar, President and CEO, American Hotel & Lodging Association (AHLA)
Katherine Lugar is President and CEO of AHLA, setting a strategic vision for our industry’s advocacy
efforts while championing the industry’s voice on Capitol Hill, within the Administration, and beyond
Washington, D.C. Working directly with the volunteer officers and board of directors, Katherine has
transformed AHLA since joining a few short years ago, tripling its membership and revenue,
quadrupling its Political Action Committee, and putting it in the top 14 of more than 700 industry PC’s,
and getting the industry and our pressing issues national attention. She has also redoubled the
industry’s efforts around job creation, and through the Foundation (AHLEF) has spearheaded a new
apprenticeship program in conjunction with the White House and is helping fund community-based
grants that advance the careers of Opportunity Youth in the hospitality industry. Her success at AHLA
has been recognized beyond the hotel industry. She’s been named by The Washington Post as a
“leader to watch,” and an “influence guru” inside the Beltway. With her at the helm, the story of our
industry’s career pathway and the unique aspects of hotel jobs is garnering attention from the White
House and beyond.
Douglas J. McCarron, General President, United Brotherhood of Carpenters and Joiners of
America (UBC)
Since Mr. McCarron has been General President, the UBC has partnered with thousands of
employers to create and operate hundreds of apprenticeship, pre-apprenticeship, and other
training programs throughout North America over the past century. Collectively, more than $200
million is spent annually on skills training and more than 49,000 apprentices are in the programs.
Currently, UBC operates over 250 training centers across North America, in eight distinct craft
areas. The union develops, writes, publishes, and teaches curriculum designed to bring skills to high
school students, pre-apprentices, apprentices, journey level workers, foremen, and superintendents
throughout the industries they serve.

Sean McGarvey, President, North America's Building Trades Unions (NABTU)
Mr. McGarvey has served as the President of North America's Building Trades Unions (NABTU)
since 2012. As the preeminent organization involved in apprenticeship readiness and
apprenticeship education and training today, NABTU and its affiliated unions appreciate efforts by
the Federal Government to increase utilization of apprenticeship education. For over 100 years, our
affiliate unions and their employer partners have cultivated effective strategies for amplifying and
encouraging private-sector initiatives to promote apprenticeships without reliance on Federal
dollars. The NABTU has a long tradition with joint labor-management apprenticeship training
committees in the Building Trades and a prominent role on the overall apprenticeship system in the
U.S.

Marc H. Morial, CEO, National Urban League (NUL)
Mr. Morial has been President of the National Urban League since 2003 where he oversees a
transformation for the 100-year-old civil rights organization. His energetic and skilled leadership
has expanded the League’s work around an Empowerment agenda, which is redefining civil rights
in the 21st century with a renewed emphasis on closing the economic gaps between Whites and
Blacks as well as rich and poor Americans. Under his stewardship the League has had record
fundraising success towards a $250 million, 5-year fundraising goal and he has secured the BBB
nonprofit certification, which has established the NUL as a leading national nonprofit.

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John Ratzenberger, Workforce Training Advocate
Mr. Ratzenberger is Hollywood’s most outspoken advocate for American manufacturing, skilled
labor, and the companies that are the foundation of our great country, working tirelessly to shine a
light on the importance of manufacturing and trades. He works with legislators on both sides of the
aisle to bring back trades training in schools, build apprentice programs for returning veterans, and
support the reshoring of American companies. He has recently launched phase one of the American
Museum of Manufacturing in Bridgeport, CT – once the industrial epicenter of America – which will
celebrate the ingenuity and impact of American manufacturing throughout our country’s history.

The Honorable Kim Reynolds, Governor, Iowa
Ms. Reynolds currently serves as the Governor of Iowa. Iowa currently has over 800 total active
Registered Apprenticeship programs; 8,178 total active registered apprentices; and 95 new
apprenticeship programs have been created in FY17. Through Ms. Reynolds' involvement in Future
Ready Iowa, the State's strategic plan to have 70 percent of the workforce with training or
education (or both) beyond high school by 2025, she has proven to be a leader in the area of
apprenticeship. In 2016, Iowa received $1.8 million from the U.S. Department of Labor to help
expand apprenticeship in the State. The projects will expand apprenticeships to diverse
populations, focusing on women, minorities, and other underrepresented groups. Expanding
Registered Apprenticeships is an important strategy in the Future Ready Iowa Initiative.

Mark B. Rosenberg, Board of Directors, Association of Public and Land-Grant Universities
Dr. Rosenberg was the 109th Chair of the Greater Miami Chamber of Commerce and led the
Academic Leaders Council of the Beacon Council, Miami-Dade County's economic development
organization, for 5 years. Mr. Rosenberg is also a member of the Florida Council of 100, a nonpartisan organization of business leaders, and the Business Network of South Florida,
representing the academic sector. Under the leadership of Dr. Rosenberg, Florida International
University has significantly improved student graduation and retention rates generally, and in
high demand State and national fields, specifically, demonstrating he has made the alignment
between university activity and employer workforce needs a university priority. This
commitment is also evident in his significant expansion of internships, the nurturing of the Talent
Development Network, which creates internship and other experiential learning opportunities in
seven industries, his partnerships with Miami Dade Public schools and Royal Caribbean Cruises
LTD, an innovative public private partnership around talent development.

Joseph Sellers, Jr., General President, International Association of Sheet Metal, Air, Rail and
Transportation Workers (SMART)
Mr. Sellers became SMART’s General President on May 1, 2015. He was president of many groups,
including the Pennsylvania State and New Jersey State Councils of Sheet Metal Workers; the
Mechanical Trades District Council of Delaware Valley; the Metropolitan Association of Presidents
and Business Representatives; and the board of directors for the National Energy Management
Institute (NEMI). He also was Secretary/Treasurer of the Mechanical and Allied Crafts Council of
New Jersey. He has held several positions with the AFL-CIO and Building and Construction Trades
Department at the national, State, and local levels.

Dawn Sweeney, President and CEO, National Restaurant Association
As President and Chief Executive Officer of the National Restaurant Association, Dawn Sweeney has
been instrumental in focusing the mission of the Association through a unique, multi-year strategic
plan, highlighting key areas of opportunity within the restaurant industry. The National Restaurant
Association’s members include quick service, fast casual, managed foodservice, casual and fine
dining – along with manufacturers, suppliers, and distributors. The American restaurant industry is
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composed of 1 million restaurant and foodservice outlets and 14 million employees. Since taking the
helm at the end of 2007, Sweeney has led the Association in a wide range of policy issues, while
offering services and products that promote the industry and help individual operators and large
multi-unit companies succeed.

Jay Timmons, President and CEO, National Association of Manufacturers (NAM)
Since 2011 Mr. Timmons has served as the President and CEO of the National Association of
Manufacturers (NAM) and the Chairman of the Board of Directors of The Manufacturing Institute.
NAM is the largest manufacturing association in the United States representing small and large
manufacturers in every industrial sector. His previous experience includes serving as Chief of Staff
to Congressman, Governor and Senator George Allen (R-VA) from 1991 to 2002, and a term as
Executive Director of the National Republican Senatorial Committee during the 2004 election cycle.
The Manufacturing Institute is leading the response to President Trump's call to establish IndustryRecognized Apprenticeship programs. In cooperation with key allies in the business community,
the Institute is working to design a quality framework that will, for the first time, allow the Institute
to recognize apprenticeship programs that are leading to the incredible careers available in
manufacturing.

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