Developing State Governance Models for Youth Apprenticeship

To establish a strong foundation for the success of youth apprenticeship programs, state leaders, such as the governor or an agency lead, should establish a clear vision for youth apprenticeship and set goals to measure progress toward that vision. State leaders can start by identifying the specific issues they aim to address through youth apprenticeship, such as increasing credential attainment or addressing opportunity gaps in the labor market. Next, it is critical to delineate key stakeholders involved and their responsibilities, to strategize how to integrate youth apprenticeships into existing education and workforce systems, and to align funding streams to support the creation or growth of programs.

State leaders should design a governance structure for youth apprenticeship that is aligned to the state’s vision and goals. The term governance structure refers to the development of policies, regulations, structures, and practices needed to oversee, implement, and monitor the system to ensure access and accountability. Some governance structures centralize authority over all or most of these functions with a single agency, while others distribute authority across agencies and partners. Some governance structures centralize authority at the state level, while others provide significant authority or autonomy to regional and local program leaders.

Decisions about centralization versus decentralization involve trade-offs (see Figure 1). For example, if a state priority is to quickly expand, a centralized governance structure might help streamline decision-making and expedite program start-up. On the other hand, if the state wants to encourage innovation and empower local actors, a more decentralized approach might work better.

However, because youth apprenticeship relies on the cooperation of partners working across multiple systems, an entirely centralized structure is unrealistic. And while decentralized approaches to youth apprenticeship exist in many states, they tend to have evolved without leadership or a clear vision from state agencies. In these cases, youth apprenticeships programs may exist, but youth apprenticeship systems do not.

In reality, it is much more common for states to establish governance models that allow them to centralize or decentralize key system functions (see Figure 2), assigning responsibility for these functions to different state or local actors, according to their system vision, goals, and capacity. Youth apprenticeship systems must perform several key functions, including establishing mechanisms for oversight; developing program criteria and standards; approving and developing programs; providing and procuring funding; and promoting and educating stakeholders about youth apprenticeship. Together, these system functions support the implementation of local youth apprenticeship programs.

A clear system vision, an aligned governance structure, and the purposeful distribution of system functions allow state youth apprenticeship systems to support the success and growth of programs at the local level. Across the United States, no two youth apprenticeship systems are identical. Below, we profile three state youth apprenticeship systems, each with its own governance model and approach to distributing key system functions.

Case Study: Maryland

Established as a statewide initiative in 2018, the Apprenticeship Maryland Program (AMP) is a collaboration of the Maryland State Department of Education (MSDE) and the state’s Department of Labor (DOL). Both agencies provide some oversight for AMP. Maryland has also established a Career and Technical Education (CTE) Committee within the Governor’s Workforce Board. The committee supports successful implementation of AMP and related initiatives by setting participation targets, developing definitions, and setting quality criteria. As of 2022–2023, 608 youth and 509 employers participated in AMP. The state hopes to dramatically increase participation through its ambitious education reform agenda, the Blueprint for Maryland’s Future.

Through The Blueprint for Maryland’s Future, the state has also established a CTE Committee within the Governor’s Workforce Development Board. The committee sets CTE participation targets, develops definitions, and sets quality criteria for industry-recognized credentials and work-based learning, particularly apprenticeships for high-school youth. However, the Blueprint places an explicit focus on expanding Registered Apprenticeships that begin while students are juniors and seniors in high school, so the CTE Committee’s efforts will focus around supporting that expansion.

AMP’s youth apprenticeship model requires 450 hours of paid on-the-job training in addition to classroom-based instruction. Maryland also already allows students to begin Registered Apprenticeships while enrolled in high school. Both models can leverage school districts’ CTE programs for related instruction, though many do not at this time. As such, part of the Governor’s Workforce Development Board CTE Committee’s charge under the Blueprint is to increase the use of CTE for related instruction. At the local level, AMP programs are implemented by county school systems.

MSDE has designated AMP youth apprenticeship as a program of study within the state’s CTE system. School districts seek approval to offer AMP youth apprenticeship opportunities by submitting CTE Program of Study proposal form to MSDE. The district must also create a local advisory committee to oversee the program and develop policies for its implementation.

To support local program development, navigators employed by the DOL recruit employers and help them become either Registered Apprenticeship or AMP youth apprenticeship program sponsors. They work to understand employers’ needs and connect them to district CTE directors and apprenticeship coordinators. They also work with employers to develop program standards and related instruction for Registered Apprenticeship and AMP youth apprenticeship programs. This coordination helps ensure students receive a high-quality learning and training experience and that employers’ needs are met.

For the AMP youth apprenticeship program, employers interested in hiring apprentices apply online through a process facilitated by the DOL. Next, in collaboration with an employer and school- or district-based staff, Navigators determine the parameters of on-the-job training, related technical instruction, and wages before submitting documentation to the Maryland Apprenticeship and Training Council (MATC). Navigators must also conduct a site visit for each employer. In a process that mirrors Maryland’s process for approving traditional Registered Apprenticeships, the MATC provides program approval for each AMP program. MATC approves program’ standards, establishes apprenticeship policies, and approves eligible occupations. Following approval, DOL staff collaborate with employers and local educational partners to refine training and educational components, and to begin the hiring process.

Maryland has not established a mechanism to provide funding for AMP on an ongoing basis. To date, MDOL, MSDE, and the local school districts have all played a role in funding local implementation. For example, Maryland’s DOL regularly applies for U.S. Department of Labor (USDOL) funding on behalf of the state’s Registered Apprenticeship system and has prioritized support for AMP within those applications. MSDE has also provided grant funding for AMP, most recently through a competitive grant process that provided $12.2 million to support AMP expansion in six school districts. The money for these grants came from the state’s American Rescue Plan Elementary and Secondary School Relief Funds. At the local level, school districts can leverage federal CTE funding received through the Carl D. Perkins V Act to support AMP, as well as funding from state and local education sources.

The state hopes to dramatically increase youth participation in Registered Apprenticeship through its ambitious education reform agenda, Blueprint for Maryland’s Future. As part of the state’s implementation efforts, the Maryland Governor’s Workforce Development Board’s CTE Committee is tasked with setting policy around quality criteria and specific programs for industry-recognized credentials and Registered Apprenticeship opportunities. Revised definitions, terminology, agency roles and responsibilities, and associated policies are expected in late 2024.

Figure 3 summarizes Maryland’s approach to youth apprenticeship governance and the key system functions.

Case Study: South Carolina

South Carolina supports registered youth apprenticeship programs through its statewide intermediary, Apprenticeship Carolina. Operating under the umbrella of the SC Technical Community College System, Apprenticeship Carolina collaborates with various stakeholders to build apprenticeship programs. Initially established to support the expansion of Registered Apprenticeship in the state in 2007, Apprenticeship Carolina began focusing on youth apprenticeship in 2012. While they provide oversight of youth apprenticeship, Apprenticeship Carolina does not grant program approval. Instead, South Carolina requires that youth apprenticeship programs register with the USDOL. Accordingly, South Carolina’s youth apprenticeship programs include 2,000 hours of on-the-job learning and at least 144 hours of related technical instruction, or a competency-based equivalent. In 2024, Registered Apprenticeship programs in South Carolina enrolled more than 2,500 apprentices between the ages of 16 and 24.

Apprenticeship Carolina employs apprenticeship consultants who work with technical colleges, industry associations, and employer entities to develop youth apprenticeship programs, which are typically coordinated at the local level by one of the state’s 16 technical colleges. Consultants work with employers to understand the competencies needed for specific occupations and help them form relationships with community colleges and school districts so they can work together to develop related education and training.

Consultants also support standards development. As part of this process, consultants work closely with program sponsors using the Standards Builder platform offered by ApprenticeshipUSA. They facilitate discussions between employers and education providers to define program structure and content. According to Apprenticeship Carolina, consultants coordinate with USDOL for support if questions arise throughout registration, which leads to a more efficient approval process for new programs and standards.[1] Once registration paperwork has been submitted, the USDOL assesses and approves the proposed standards. While the employer can submit the paperwork directly, consultants typically handle this process for their partner companies.

Apprenticeship Carolina advocates for dedicated state funding and creatively leverages federal grants, private funding, and tax credits to support apprenticeship expansion. Over the years, the state legislature has continued to invest in local program growth, including allocating direct, nonrecurring funds in 2023 to support Apprenticeship Carolina’s work with small business sponsors.[2] Apprenticeship Carolina also receives operational funds through the legislature’s allocation to the SC Technical College System and from USDOL grants. Apprenticeship Carolina represents South Carolina in federal grant applications and administers awards on the state’s behalf. For example, in 2018, Apprenticeship Carolina received a Youth Apprenticeship Readiness Grant and has used it to offset the cost of related technical instruction for youth apprentices enrolled in programs across the state.[3] The state of South Carolina has also supported employers through a Registered Apprenticeship tax credit. Currently, employers can receive up to $1,000 per apprentice for up to four years. A bill moving through the State Senate could increase the benefit for employers hiring youth apprentices.

However, the state does not provide regular, recurring funds to support youth apprenticeship. At the local level, youth apprenticeship programs braid a variety of funding sources, including dollars passed through from Apprenticeship Carolina, as well as K–12 funding (e.g., Perkins Career & Technical Education funding and local K–12 funds), state scholarship dollars, and philanthropic support.

Figure 4 summarizes South Carolina’s approach to youth apprenticeship governance and the key system functions.

Case Study: Wisconsin

Wisconsin is one of the first states to adopt and implement youth apprenticeship, with a structured system dating back to 1991. Legislation passed in that year created a distinct model of youth apprenticeship, which requires 450 or 900 hours of on-the-job learning plus two academic courses typically delivered by high school or postsecondary CTE courses. Since then, Wisconsin’s Youth Apprenticeship program has enrolled nearly 45,000 young people and partnered with nearly 20,000 employers. In 2021–2022, youth apprenticeship participation in Wisconsin hit an all-time high of 8,357 apprentices working at 5,719 employers.

Oversight for the youth apprenticeship system lies with Wisconsin’s Department of Workforce Development (DWD), which supports regional program implementation. DWD also oversees Registered Apprenticeship in Wisconsin, but the state’s Youth Apprenticeship program operates independently from it. When it comes to youth apprenticeship, DWD partners with the Department of Education, which ensures that youth apprenticeship aligns with CTE, partners with community colleges on course availability, and administers pathway funding. DWD also supports employers, local education agencies, technical colleges, chambers of commerce, and industry associations involved in the system.

A key part of DWD’s role is to establish program standards. DWD collaborates closely with employers, industry stakeholders, and educators, using labor-market data to identify occupations to include in the Youth Apprenticeship program. They offer youth apprenticeship pathways in 14 industry areas, aligned with the state’s CTE clusters. DWD provides detailed curriculum guides and skills standards checklists, developed with input from industry representatives, employers, and educators. While standards are set at the state level, local programs can request a substitution for a standard or competency if customization is needed. This approach expedites the start-up process for new programs by leveraging pre-approved standards and promotes rigor and consistency in program models statewide, according to program staff at DWD.[4] DWD is also responsible for selecting program criteria and establishing which programs are offered at the state level. Local programs, known as consortia, may choose from occupational programs and pathway offerings that are developed by DWD.

Each year, DWD requests proposals from local entities referred to as consortia to administer Youth Apprenticeship programs. Consortia may consist of single school districts or involve multiple stakeholders, such as chambers of commerce, community colleges, or workforce investment boards.[5] As part of the application, the interested consortium identifies the DWD-approved Youth Apprenticeship programs it intends to offer, identifies partners, and outlines its diversity, equity, and inclusion goals. Once DWD approves a consortium’s application, regional coordinators, employed by the consortium, play a pivotal role in program development. They are tasked with recruiting employers, promoting programs to students, providing mentor training, arranging related technical instruction, and reporting to DWD.

DWD also provides funding to support the consortia. Consortia can apply to DWD for grant funding to support program implementation costs. For the 2024–2026 funding period, consortia were eligible to receive up to $1,100 per apprentice served. Funding for these grants comes from an annual appropriation from the Wisconsin State Legislature. DWD also leverages Perkins and Workforce Innovation and Opportunity Act funding to provide additional support for youth apprenticeship activities, when applicable. DWD actively encourages consortia to explore local funding sources to support their programs, such as local chambers of commerce, economic development boards, and business and industry partners.

Figure 5 summarizes Wisconsin’s approach to youth apprenticeship governance and the key system functions.

Youth apprenticeship can connect the learning needs of youth with the talent needs of industry. States have an important role to play in expanding youth apprenticeship, but must design systems to ensure quality, access, and accountability. To do so, state leaders must establish a clear vision for youth apprenticeship and a governance system that can help the state achieve its goals. A key part of this process is distributing responsibility for key system functions across the various agencies and actors that must cooperate to make youth apprenticeship successful. While some states choose to concentrate most functions within a single agency, others distribute functions across multiple. States must consider potential trade-offs, as well as system capacity, in developing a structure that can help them achieve their vision for youth apprenticeship.

Updated at 2:00 pm on August 15, 2024: This brief was edited to reflect recent and upcoming changes to Maryland's approach to youth apprenticeship driven by the state's ambitious reform agenda, Blueprint for Maryland's Future.

The author would like to extend thanks to state leaders who participated in interviews for this brief, especially to Amanda Richardson and Kirsten Pratt from Apprenticeship Carolina; Amy Phillips from the Wisconsin Department of Workforce Development; and Chris MacLarion and Logan Dean from the Maryland Department of Labor. We would also like to acknowledge the invaluable work of many colleagues on New America’s communications and production staff, in particular Katherine Portnoy, Natalya Brill, Amanda Dean, Naomi Morduch Toubman, Sabrina Detlef, and Taylor White.

The Partnership to Advance Youth Apprenticeship’s work is made possible by the generous support of our funders.

[1] Amanda Richardson (Vice President, Apprenticeship Carolina) and Kirsten Pratt (Associate Vice President, Apprenticeship Carolina), phone conversation with author, March 12, 2024.

[2] Richardson and Pratt, March 12, 2024.

[3] Richardson and Pratt, March 12, 2024.

[4] Amy Phillips (Youth Apprenticeship Coordinator, Wisconsin Department of Workforce Development), phone conversation with author, March 8, 2024.

[5] Phillips, March 8, 2024.