Inclusive apprenticeships: Advancing employment equity for jobseekers with disabilities

1.1Defining apprenticeship

While the term “apprenticeship” is often lumped in with other work-based learning options, it is important to recognize that apprenticeship represents a very specific approach. While there are “apprenticeship-like” programs, a true apprenticeship program is one that meets specific criteria, and the context for the purposes of this paper are Registered Apprenticeship (RA) programs that meet highly defined standards, and are registered with the US Department of Labor (DOL) or state apprenticeship offices.

There are five criteria that define an apprenticeship: a) apprenticeships are paid employment, with the individual hired by an employer; b) there are scheduled wage increases (based on achieving competency levels or hours worked); c) there is a mentor, who is an experienced worker, at the job site; d) the apprenticeship includes related technical instruction (RTI); and e) the apprenticeship results in earning of an industry credential.

Apprenticeships are supported via four components: 1) An employer; 2) A sponsor (the organizing entity for the apprenticeship); 3) Related Technical Instruction provider; 4) Support services. All four of these components may be provided by an employer. However, other organizations may provide one or more of these components, and they can be spread across multiple entities.

Apprenticeships are a highly structured approach to competency development over time. Per DOL requirements, apprenticeships must be a minimum of 2,000 hours, with 144 hours of Related Technical Instruction. Apprenticeships are based on industry standards, and apprenticeships are created by breaking down positions into required competencies (Jobs for the Future, 2022).

Apprenticeships have traditionally been in building, construction, and other trades, and the majority of apprenticeships are still in these fields. However, apprenticeships are increasingly in a diversity of fields, such as healthcare, foodservice, and technology (USDOL Office of Disability Employment Policy, 2022).

A pathway to apprenticeship programs are Pre-Apprenticeship programs. Pre-Apprenticeship programs are designed to prepare individuals for apprenticeships and careers in specific fields. Pre-Apprenticeships typically consist of a combination of classroom instruction and career exploration with businesses (Apprenticeship USA, 2022).

There are numerous benefits to apprenticeships. For individuals, apprenticeships provide a highly structured, systematic earn and learn approach resulting in skill development, stable employment, and movement along a career pathway. Apprenticeships also result in positions at higher wages. The earn and learn approach of apprenticeships can also be an alternative to 2 and 4-year post-secondary education. For employers, the benefits of apprenticeships are the opportunity to systematically train individuals according to industry standards and meet their needs for a skilled and stable workforce.

There are ongoing efforts to diversify apprenticeships, which include greater inclusion of people with disabilities. In 2016, the Equal Employment Opportunity requirements for apprenticeships were updated, and among the requirements is that sponsors must ensure that outreach and recruitment efforts are inclusive of people with disabilities, with an aspirational goal that 7% of apprentices in each major occupational group have a disability. In addition, sponsors with 5 or more apprentices must have an affirmative action plan and must request voluntary disclosure of disability by applicants and apprentices (Code of Federal Regulations, 2016). In 2021, the US Department of Labor awarded funding to 15 states (AK, CA, CO, CT, ID, IL KS, MA, ME, MI, NV, OR, RI, SC, TX) to increase the diversity of individuals participating in apprenticeships (including those with disabilities), and also funded a national technical assistance center focused on diversifying apprenticeships, the Jobs for the Future National Hub for Diversity, Equity, Inclusion, and Accessibility in Registered Apprenticeship (US Department of Labor, 2021), in which ICI is a partner.

1.2Inclusive apprenticeship

There are four critical pillars to removing structural barriers and ensuring equity in the design and implementation of apprenticeship programs: education, access, belonging, and continuous improvement as defined below and explored in the following sections (Conrad et al., 2020).

1.3Education

While apprenticeship programs present an opportunity for people with disabilities to obtain higher quality, better paying jobs, one of the most striking barriers that has arisen in our work with VR agencies is the lack of understanding of apprenticeship programs and the value that building a diverse pipeline of skilled apprentices can add to the workforce. VR and other disability programs and service providers understanding the key components of apprenticeship programs, is a gateway to getting more people with disabilities knowledgeable about and prepared for career pathways aligned with the most in-demand sectors. Accessible marketing is key to promoting awareness and understanding of apprenticeship programs and opportunities for people with disabilities.

1.4Access

In 2021 there were 27,385 active Registered Apprenticeship programs with 593,690 active apprentices (DOL Office of Apprenticeship, 2021). While the Department of Labor’s Office of Apprenticeship captures individual record data on a number of demographics, there is limited data on how many apprentices are individuals with disabilities. Even though the EEO regulations were released in 2016, the Federal Office of Apprenticeship only began to conduct compliance reviews regarding 29 CFR Part 30 (Equal Opportunity in Apprenticeship) in 2022. In addition, disclosure of a disability is voluntary and many individuals choose not to report. Also, only those apprenticeship sponsors with 5 or more apprentices (approximately 25% of all apprenticeships) are required to invite individuals to voluntarily self-disclose disability status. While the data on participation of people with disabilities in apprenticeship programs is limited, state vocational rehabilitation (VR) agencies report very few referrals are made to existing apprenticeship programs.

To address these access issues, there is a need to consider on a systemic and universal level how each component of apprenticeship can be addressed to expand opportunities for people with disabilities: the application and interview process, on-the-job learning, related instruction, mentorship, testing, and evaluation of learning/competency development. This includes identifying best practices in regards to each of these components, as well as necessary policies and capacity-building within apprenticeship programs so that they are more inclusive of individuals with disabilities.

1.5Belonging

To design inclusive apprenticeship programs, there is a need to create environments where individuals can show up as their full and authentic selves and are able to express all these facets of themselves. That means the apprenticeship programs should leverage the full potential of all the apprentices’ talent by focusing on equity, diversity, and inclusion in the workplace.

Equity is recognizing that we do not all start from the same place and must acknowledge and make adjustments to imbalances by allocating resources to address their unique challenges and opportunities that leverage their unique strengths for an individual to attain their full potential. The process is ongoing, requiring the identification and addressing of intentional and unintentional barriers arising from bias or systemic structures.

The Equal Employment Opportunity regulations for Registered Apprenticeship programs lay the foundation for equity, but programs need to take it to the next level. Employers, VR and other partners involved in the creation of apprenticeship programs should identify conscious and unconscious biases as a starting point. In addition, practices and policies need to be examined to make sure they do not create barriers and prevent apprentices and applicants from being fully engaged, supported, and able to reach their potential. Some of the barriers most often identified in accessing or successful completion of an apprenticeship program include:

1.6Continuous improvement

The following are key questions for apprenticeship programs to consider in continuously improving the inclusion of individuals with disabilities:

It is important to build collaborative partnerships that can work towards more inclusive, diverse apprenticeship programs, to assist apprenticeship programs in addressing these continuous improvement issues. VR agencies, for example, should partner with businesses and schools to help build program curriculum and design that best meets the needs of apprenticeship sponsors, while also ensuring accessibility for people with disabilities. The next step is to empower people with disabilities to share their feedback about the level of inclusion within apprenticeship programs and apply the lessons learned to future iterations of the program design. Collecting and analyzing data is key to understanding the barriers that impede the success of apprentices with disabilities and how to improve employment outcomes.

2.1Linking VR as a key apprenticeship program partner

To expand on the limited participation of individuals with disabilities in apprenticeship programs, VR agencies have expanded efforts regarding apprenticeship programs as a viable employment strategy. VR is well positioned to advocate and help inform the change needed to make apprenticeship programs fully inclusive. In fact, VR agencies have been added to the apprenticeship planning committee in some states to help inform DEIA efforts and ensure people with disability have access to apprenticeship programs. Several of the 15 states that were awarded the State Apprenticeship Expansion, Equity and Innovation grants included VR as a partner. Some state VR agencies, for example AR, VT, WY, are coming to the table as the need for Pre-Apprenticeship programs grow. Many have existing partnerships with local and state training and education programs and the infrastructure in place to provide the foundational skills needed to create a pipeline for existing and new apprenticeship programs.