Registered Apprenticeship: Federal Role and Recent Federal Efforts




Registered Apprenticeship: Federal Role and
Recent Federal Efforts

Updated March 17, 2021
Congressional Research Service
https://crsreports.congress.gov
R45171




Registered Apprenticeship: Federal Role and Recent Federal Efforts

Summary
Apprenticeship is a workforce development strategy that trains a worker for a specific occupation
using a structured combination of paid on-the-job training and related instruction. Increased costs
for higher education and possible mismatches between worker skil s and employer needs have led
to interest in alternative workforce development strategies such as apprenticeship.
The largest federal role in supporting apprenticeships is the administration of the registered
apprenticeship system. In this system, the federal Department of Labor (DOL) or a DOL-
recognized state apprenticeship agency (SAA) is responsible for evaluating apprenticeship
programs to determine if they are in compliance with federal regulations related to program
design, worker protections, and other criteria. Programs that are in compliance are “registered.”
While registration does not trigger any specific federal financial incentives, registered programs
may receive preferential consideration in various federal systems and apprentices who complete a
registered program receive a national y recognized credential.
Historical y, registered apprenticeship has been the primary avenue through which the federal
government has supported apprenticeship and, in the federal context, apprenticeship has
historical y been synonymous with registered apprenticeship programs. While there have been
some recent efforts to expand federal involvement in apprenticeship beyond the registered
system, this report focuses on registered apprenticeship.
To register an apprenticeship, a sponsor (an employer, union, industry group, or other eligible
entity) submits an application to the applicable registration agency (either DOL or the appropriate
SAA). The application must include a work process schedule that describes the competencies that
the apprentice wil learn and how on-the-job training and related instruction wil teach those
competencies. The application must also include a schedule of wage increases for the apprentice,
a description of safety measures, and various assurances related to program administration and
recordkeeping.
If the registration agency finds that the program is in conformity with the requirements, the
program receives provisional registration. Once a program receives permanent registration, the
registration agency is responsible for reviewing the program for conformity not less than once
every five years.
In recent years, the federal government has supplemented its typical registration activities with
competitive grants to support the expansion of registered apprenticeship as a workforce
development strategy. These grants have gone predominantly to states and other intermediaries to
support apprenticeship expansion through partnerships with apprenticeship sponsors.
While registered apprenticeship sponsors do not necessarily qualify for federal funding, several
education and workforce programs have identified apprenticeship as an eligible use of funds. For
example, some veterans may qualify to receive GI Bil benefits while participating in a registered
apprenticeship and registered apprenticeships are eligible for federal workforce development
funds through the Workforce Innovation and Opportunity Act (WIOA).
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Contents
Introduction ................................................................................................................... 1
Registered Apprenticeship ................................................................................................ 1

Registration Agencies................................................................................................. 2
Pre-apprenticeship Programs ....................................................................................... 3
Registration Criteria and Process ....................................................................................... 4
Qualified Occupations ................................................................................................ 4
Program Frameworks and Standards of Apprenticeship ................................................... 5
Program Approval and Registration Process................................................................... 6
Oversight, Program Performance, and Deregistration ...................................................... 6

Deregistration Process........................................................................................... 6
Role of Intermediaries in the Registration Process .......................................................... 7
United Services Military Apprenticeship Program (USMAP)............................................ 7

Registered Apprenticeship Participation Data ...................................................................... 8
Recent Federal Activity.................................................................................................... 9
Recent Grant Programs............................................................................................... 9
Grants Supported by Appropriated Funds ................................................................. 9
Grants Supported by H-1B Training Funds ............................................................. 11
Industry-Recognized Apprenticeship Programs (IRAP) ................................................. 12
Trump Administration and Establishment of IRAP Regulations ................................. 12
Biden Administration Action ................................................................................ 13
Legislative Activity in the 117th Congress ......................................................................... 13

Figures
Figure 1. Entity Responsible for Registering Apprenticeship Programs in Each State ................. 3

Tables
Table 1. Registered Apprenticeship: Participation and Completion .......................................... 8
Table 2. Active Apprentices in Registered Programs by Industry for FY2019............................ 9
Table 3. Appropriated Funds for Apprenticeship Expansion, FY2016-FY2021 ........................ 10

Appendixes
Appendix. Federal Funding Streams that May Directly Support Apprenticeship ...................... 15

Contacts
Author Information ....................................................................................................... 17

Congressional Research Service

Registered Apprenticeship: Federal Role and Recent Federal Efforts

Introduction
Apprenticeship is a workforce development strategy that trains a worker for a specific occupation
using a structured combination of paid on-the-job training and related instruction. Increased costs
for higher education and possible mismatches between worker skil s and employer needs have led
to increased congressional interest in alternative workforce development strategies such as
apprenticeship.
Compared to some other developed nations, utilization of apprenticeship in the United States is
relatively low.1 Some commentators have interpreted the relative dearth of apprenticeship
programs in the United States as an opportunity for large-scale expansion.2 Others have suggested
that other nations’ labor market institutions and employers are more accommodating to
apprenticeship models and prospects for domestic growth may be limited.3
Historical y, the primary federal mechanism in the United States for supporting apprenticeships
has been registering individual programs that comply with federal y directed standards
(“registered apprenticeships”). Registration is carried out by the Department of Labor (DOL) or a
DOL-approved state agency. In recent years, DOL has supported expanded use of apprenticeship
through a series of grants to states and other entities.
This report discusses federal efforts related to registered apprenticeship. It begins by describing
the long-established federal role in certifying apprenticeships programs through the registered
apprenticeship system. It then discusses more recent federal efforts to support the expansion of
registered apprenticeship as a workforce development strategy, including House-passed
legislation in the 117th Congress. The appendix of the report discusses federal funding streams
that focus on other human capital development strategies but can support apprenticeship in
certain circumstances.
Registered Apprenticeship
The National Apprenticeship Act of 1937 directs DOL to “formulate and promote the furtherance
of labor standards necessary to safeguard the welfare of apprentices.” 4 DOL has carried out these
provisions by developing a system in which DOL or a DOL-recognized state apprenticeship
agency registers individual programs as meeting federal and/or state standards. Registration
agencies also issue certificates of completion to apprentices who complete a registered program.
The National Apprenticeship Act is relatively concise, and the Registered Apprenticeship system
has been established and developed predominantly through regulations and non-regulatory
guidance.5 The agency within DOL that carries out the National Apprenticeship Act is the Office
of Apprenticeship; the office’s chief official is the administrator.

1 Apprentices make up less than 0.5% of the U.S. labor force, less than Canada (2.2%), Britain (2.7%), and Germany
(3.7%). See Robert Lerman, “Expanding Apprenticeship Opportunities in the United States,” T he Hamilton Project,
2014, http://www.hamiltonproject.org/assets/legacy/files/downloads_and_links/
expand_apprenticeship_opportunities_united_states_lerman.pdf.
2 Ibid.
3 For example, see Gail Heriot, “Apprenticeships: Useful Alternative, T ough to Implement,” Cato Institute Policy
Analysis No. 805, November 17, 2016.
4 See 29 U.S.C. §50 et seq.
5 Primary regulations are at 29 C.F.R. §§29-30.
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Registration of an apprenticeship program does not entitle an apprenticeship sponsor (often an
employer, although it can also be a labor union, industry group, or other eligible entity) to direct
financial support from the federal government. Registration can make it easier for an
apprenticeship program to operate within the eligibility rules of some federal programs and
systems. For example, registered apprenticeship programs are approvable for GI Bil support, and
are automatical y eligible training providers for federal workforce funds.6 It is very likely,
however, that at least some federal y registered programs do not receive any federal funds.7
In federal context, apprenticeship and registered apprenticeship have historical y been
synonymous. Recent federal efforts to establish Industry-Recognized Apprenticeship Programs
(IRAP) that operate separately from the registered apprenticeship system are discussed in the
“Industry-Recognized Apprenticeship Programs (IRAP)” section towards the end of this report.
This report focuses on registered apprenticeship, and when it refers to apprenticeships and
apprentices it is referring to registered programs and their participants, unless specified
otherwise.
Related Instruction Component of Registered Apprenticeship
While on-the-job training is the most visible component of apprenticeship, registered apprenticeship programs are
also required to have a “related instruction” component. Regulations define related instruction as “an organized
and systematic form of instruction designed to provide the apprentice with the knowledge of the theoretical and
technical subjects related to the apprentice’s occupation.” While there is no required amount of related
instruction, regulations recommend at least 144 hours per year.8
Related instruction can be provided by a postsecondary institution such as a community col ege, directly by the
apprenticeship sponsor, or through another provider. It can be provided in a classroom setting or through other
means, such as self-study. Related instruction may lead to a degree or other credential, but it is not required to do
so. Related instruction is often provided at no cost to the apprentice, but there is no requirement to that effect.9
Registration Agencies
Registered apprenticeships are programs that have been certified by a qualified registration
agency as being in compliance with applicable standards. DOL’s Office of Apprenticeship may
register programs. A state may also elect to establish a state apprenticeship agency (SAA) that can
register apprenticeship programs in the state.
If a state elects to establish an SAA, the SAA must be approved by the federal DOL using a
process established in regulations.10 The state must submit an application to DOL that specifies
the applicable agency and describes its standards, criteria, and requirements for registration. Once
approved by DOL, an SAA’s recognition is effective for five years, during which DOL wil
monitor the state agency. After five years, DOL may notify the SAA that it is in conformity with
regulations and renew its recognition for an additional five years. If the SAA is not in conformity,

6 For more information on how registered apprenticeship operates in these and other systems, see the Appendix of this
report.
7 Some states may offer tax benefits to apprenticeship sponsors. DOL has compiled a list of state -level tax benefits at
https://doleta.gov/oa/taxcredits.cfm.
8 See 29 C.F.R. §29.5(b)(4).
9 A 2016 report commissioned by the Department of Commerce on business perspectives on apprenticeship noted that
related instruction “is usually tuition-free to the apprentice” and that “many of the companies with whom we spoke also
pay hourly wages or a flat stipend to the employee for their classroom time.” See U.S. Department of Commerce, The
Benefits and Costs of Apprenticeship: A Business Perspective
, November 2016, archived at the Department of
Education’s Education Resources Information Center at https://files.eric.ed.gov/fulltext/ED572260.pdf.
10 See 29 C.F.R. §29.13.
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DOL wil notify the state of its nonconformity and provide technical assistance. After the
nonconformities are corrected, DOL wil renew recognition for another five years.
Currently, 26 states operate an SAA and 24 states register programs through DOL (see Figure 1).
The District of Columbia, Guam, and the Virgin Islands operate SAAs. Apprenticeship programs
in Puerto Rico are registered through DOL.
Figure 1. Entity Responsible for Registering Apprenticeship Programs in Each State


Source: Map created by CRS GIS Analyst Jim Uzel based on data from U.S. Department of Labor, Office of
Apprenticeship, https://doleta.gov/OA/contactlist.cfm.
Pre-apprenticeship Programs
Pre-apprenticeship programs are educational programs designed to prepare individuals for a
registered apprenticeship program. Pre-apprenticeship programs can provide instruction in
general education (e.g., mathematics) or vocational fields. DOL does not register or regulate pre-
apprenticeship programs, though it has issued guidance on the characteristics of a quality pre-
apprenticeship program.11 Among other attributes, DOL specified that a quality pre-
apprenticeship program should have facilitated entry into a registered apprenticeship program.

11 For example, DOL identifies elements of a “quality pre-apprenticeship program” and provides examples of such
programs on its apprenticeship website at https://www.apprenticeship.gov/employers/explore-pre-apprenticeship. See
also Department of Labor T raining and Employment (T EN) No. 13 -12, “ Defining a Quality Pre-Apprenticeship
Program and Related T ools and Resources,” November 30, 2012, https://wdr.doleta.gov/directives/corr_doc.cfm?
DOCN=5842.
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Registration Criteria and Process
To register an apprenticeship program, the apprenticeship sponsor must submit an application to
the applicable registration body (either DOL or an SAA).12 The application must include a
description of the program and how it complies with standards established in regulation.
Apprenticeship sponsors have several options for assistance in developing their programs and
corresponding registration applications. Sponsors can seek assistance directly from the
registration agencies or from an intermediary such as an industry group.
Why Register an Apprenticeship Program?
Because many apprenticeship sponsors receive no direct financial benefit from the federal government, it may be
reasonable to ask why a sponsor would choose to register a program. There are several potential benefits:

Ease of operation in other federal contexts. Some federal programs and policies may offer preferential
treatment or simplified processes for registered apprenticeship programs. For example, registered
apprenticeship programs have an abbreviated approval process for GI Bil funding and workforce funding
under the Workforce Innovation and Opportunity Act (WIOA). Unregistered apprenticeship programs
would have to apply for these programs under separate on-the-job training criteria. See the Appendix
for more interactions between registered apprenticeship and other federal policies.

Widely recognized indicator of program quality. Workers who finish a registered apprenticeship receive a
DOL certificate of completion, which is a national y recognized credential. The wide acceptance of this
credential may make a registered apprenticeship more attractive to a prospective apprentice.

Technical support. Sponsors of registered programs can receive assistance from registration agencies in
program design and delivery as wel as marketing and recruitment.
Qualified Occupations
Not al occupations can be taught through an apprenticeship. Regulations specify that an
occupation for which a worker can be trained through an apprenticeship must
 involve skil s that are customarily learned in a practical way through a structured,
systematic program of on-the-job supervised learning;
 be clearly identified and commonly recognized throughout an industry;
 involve the progressive attainment of manual, mechanical, or technical skil s and
knowledge which, in accordance with the industry standard for the occupation,
would require the completion of at least 2,000 hours of on-the-job learning to
attain; and
 require related instruction to supplement the on-the-job learning.13
DOL maintains a list of more than 1,200 apprenticeable occupations.14 Sponsors who wish to
establish an apprenticeship in a new occupation should contact DOL or the applicable SAA for an
apprenticeability determination.

12 In the case of an apprenticeship that will operate in multiple states, the sponsor can apply for approval from DOL as
a National Program.
13 See 29 C.F.R. 29.4.
14 See https://doleta.gov/OA/occupations.cfm. The list was last updated August 7, 2020.
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Program Frameworks and Standards of Apprenticeship
Sponsors have a number of options in designing an apprenticeship program. Regulations establish
three general frameworks for a program:15
Time-based approach measures skil attainment through completion of a
specified number of hours of on-the-job training (at least 2,000), as specified by
the work process schedule (see below).
Competency-based approach measures skil attainment through the apprentice’s
demonstration of specified skil s and knowledge, verified by the sponsor. A
competency-based program must stil address how on-the-job training is
incorporated into the program.
Hybrid approach measures an apprentice’s skil attainment through a
combination of a specified minimum number of on-the-job hours and verified
demonstration of competencies.
Each registered apprenticeship program must have a written plan specifying the terms and
conditions of the apprenticeship (“program standards”). Among other required content, the plan
must include a work process schedule, which outlines the major competencies of the occupation
and how a combination of on-the-job training and/or related instruction wil lead to the worker
demonstrating proficiency in those competencies.
Regulations specify a number of components that the apprenticeship sponsors’ standards must
address. Standards relate to program design, apprentice protections, and rules related to
administration and recordkeeping. Some key standards include the following:16
 Outline of the work processes in which the apprentice wil receive supervised
experience and training and the approximate amount of time spent on each
process.
 Description of the related instruction the apprentice wil receive in a classroom or
alternative setting. A minimum of 144 hours of related instruction per year is
recommended.
 Schedule of progressively increasing wages for the apprentice. The entry wage
may not be less than the federal minimum wage, or a higher wage level if
required by another federal law, state law, or collective bargaining agreement.
 Assurance of adequate and safe equipment and facilities and safety training for
apprentices.
 Definition of probationary period for apprentices in the program. The
probationary period cannot exceed 25% of the length of the program or one year,
whichever is shorter.
 Contact information for the appropriate authority to receive, process, and make
disposition of complaints.

15 For more details on each of these approaches, see Department of Labor Apprenticeship Circular 2016 -01; “Guidance
for Competency-based, Hybrid, and T ime-based Apprenticeship T raining Approaches;” October 20, 2015;
https://doleta.gov/OA/cir16/Cir2016-01.pdf.
16 For an employer-targeted guide to developing program standards, see the DOL-issued Standards Builder User Guide
at https://www.apprenticeship.gov/sites/default/files/Standards_Builder_User_Guide.pdf.
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Additional standards relate to administrative matters such as the construction of apprenticeship
agreements, credit for previous experience, compliance with Equal Employment Opportunity
provisions, and records maintenance.17
Program Approval and Registration Process
If the registration agency finds that the program conforms to standards in regulation, the program
is granted provisional approval for one year. At the conclusion of the provisional year, the
registration agency reviews the program for quality and conformity with regulations. After the
review, the registration agency may make the program’s registration permanent; continue
provisional approval through the first training cycle; or, if the program is not in compliance,
recommend the program for deregistration.18
Oversight, Program Performance, and Deregistration
Once a program is permanently registered, the registration agency must review the program not
less than once every five years to ensure that it remains in compliance with the required
standards. Regulations specify that factors in evaluation must include, but are not limited to, the
following:
Quality assurance assessments. These reviews determine that programs are
providing on-the-job training, related instruction, wage increases, and meeting
other requirements consistent with registration standards.
Equal Employment Opportunity (EEO) Compliance Reviews. The registration
agency may review company records or interview employees or hiring officials
to ensure compliance with EEO requirements.19
Completion rates. To evaluate completion rates, the registration agency compares
a program’s rate to the national average. Apprenticeships that are cancel ed
during the probationary period do not have an adverse effect on the program’s
completion rate.
In cases where a program sponsor has completion rates below the national average, the
registration agency wil provide technical assistance. In cases of persistently low completion
rates, the program may be subject to deregistration.
Deregistration Process
A registration agency may undertake deregistration proceedings if a program fails to comply with
the required standards of apprenticeship or demonstrates “persistent and significant failure to
perform successful y.”20 Regulations define a program that fails to perform as one that
 consistently fails to register at least one apprentice,
 shows a pattern of poor quality assessments by the registration agency over a
period of several years,

17 Full standards are in regulations at 29 C.F.R. §29.5(b). DOL also p resented the standards as a 23-item checklist in
DOL Circular 2015-01; “ Policy on Authentication and Issuance of Certificates of Registration of Apprenticeship
Programs;” June 24, 2015; https://doleta.gov/OA/cir15/Cir2015-01.pdf.
18 See 29 C.F.R. §29.3 for more details.
19 See 29 C.F.R. §30 for full EEO information and 29 C.F.R. §30.13 for information on compliance reviews.
20 See 29 C.F.R. §29.8 for more information on deregistration.
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 demonstrates an ongoing pattern of very low completion rates over a period of
several years, or
 shows no indication of improvement in the areas identified by the registration
agency during a review process as requiring corrective action.
If a program is not performing in accordance with standards or requirements, the registration
agency must notify the sponsor in writing of the shortcomings and the remedies required.
Following this notice, the registration agency must “assist the sponsor in every reasonable way to
achieve conformity.” If the program does not demonstrate the required corrections in the al otted
period of time, the registration agency notifies the sponsor of deregistration proceedings.21 The
sponsor may request a hearing with an administrative law judge. If the sponsor does not request a
hearing, the recommendation for deregistration and al supporting documents are submitted to the
administrator of the Office of Apprenticeship. The administrator makes the final decision
regarding deregistration.
Role of Intermediaries in the Registration Process
While a sponsor has the option of designing an apprenticeship program independently and then
registering the program directly with the applicable registration agency, many sponsors work with
an intermediary in the development and registration of a program. Intermediaries can include
public agencies, private nonprofits, labor organizations (unions), or industry groups.
Intermediaries can assist employers with the construction of a program that wil meet the required
standards. Intermediaries can facilitate connections with providers of related instruction or help
sponsors develop their own instructional programs. Intermediaries can also assist sponsors with
applying to a registration agency.
In some cases, an intermediary can develop a program, register it, and then partner with
individual employers to carry out the actual apprenticeships. This approach al ows individual
employers to participate in an apprenticeship program without the burden of developing and
registering it.22 For example, the American Hotel and Lodging Association (AHLA) developed
and registered an apprenticeship program for the occupation of lodging manager. Individual
employers that wish to use the program complete an employer acceptance agreement, committing
to the work processes and other standards developed by the AHLA and approved by DOL.23
Individual hotels are then responsible for recruiting apprentices and carrying out the program,
using AHLA’s standards.
United Services Military Apprenticeship Program (USMAP)
In some circumstances, members of the Armed Forces may complete a registered apprenticeship
program while serving on active duty. Typical y, USMAP participants may complete at least some
apprenticeship requirements through their normal military duties.

21 Specifically, the registration agency may establish that a reasonable cause for deregistration will be made unless the
sponsor demonstrates corrective action within 30 days. T his period can be extended for an additional 30 days.
22 For more information on workforce intermediaries serving at the sponsor, see Department of Labor Office of
Apprenticeship Bulletin 2016-16; “ Guidance on Organizations that can serve as Registered Apprenticeship Sponsors;”
March 21, 2016; https://doleta.gov/OA/bul16/Bulletin_2016-26.pdf.
23 See program description at https://chooserestaurants.org/NationalRestaurantAssociation/media/NRAEF/Donors/
Lodging-Mgmt -Apprenticeship-Program_FINAL.pdf.
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Military apprenticeships are registered with DOL using an application process that is similar to
the process used by civilian employers. Members of the Armed Forces who complete a USMAP
apprenticeship receive a certificate of completion from DOL, which can serve as a national y
recognized indicator of proficiency in an occupation to civilian employers.
USMAP participants must pursue an apprenticeship that is related to their military occupational
specialty (MOS), though there may be several apprenticeship options within a single MOS. For
example, an utilitiesman in the Navy (an occupation responsible for working with plumbing,
heating, steam, fuel, and other systems) may pursue an apprenticeship in six different
occupations.24
Registered Apprenticeship Participation Data
Table 1
presents participation in registered apprenticeships from FY2015 through FY2019. The
“National Total” columns include al registered apprenticeship programs. The “Military
Apprenticeship Program” column is members of the Armed Forces in the USMAP; these
participants are a subset of the national totals.
The table includes counts of active, new, and completer apprentices. Readers should not use the
data in the table to calculate annual completion percentages. The multiyear nature of most
programs means that most new apprentices would not complete a program until a subsequent
fiscal year. Further, new apprentices who discontinue a program within the probationary period
may be included in Table 1 but would not be counted in the eventual calculation of the program’s
completion rate.
Table 1. Registered Apprenticeship: Participation and Completion
FY2015-FY2019

National Total
U.S. Military Apprenticeship Program
Fiscal
Active
New
Total
Active
New
Total
Year
Apprentices
Apprentices
Completers
Apprentices
Apprentices
Completers
2015
447,929
197,535
52,717
95,770
55,445
11,511
2016
505,371
206,020
49,354
95,001
54,756
11,104
2017
533,607
191,563
64,021
89,301
48,715
12,063
2018
585,026
238,549
71,789
98,435
59,379
12,125
2019
633,476
252,271
81,552
109,878
62,309
13,707
Source: Department of Labor, “Registered Apprenticeship National Results,” https://doleta.gov/oa/
data_statistics.cfm.
Notes: National totals include programs registered by the U.S. Department of Labor, State Apprenticeship
Agencies, and U.S. Military Apprenticeship Program.
While total participation is available for registered apprenticeships nationwide, some data are
limited to programs that are registered with DOL (not state apprenticeship agencies). Table 2 is
limited to federal y registered apprentices and presents industries with the most apprentices in
FY2019. About 68% of active apprentices were in the construction industry.

24 Robert Lerman et al., T he United States Military Apprenticeship Program: Implementation Study and Feasibility for
an Impact Study,” Urban Instit ute, November 2015, https://www.dol.gov/asp/evaluation/completed-studies/
T he_United_Services_Military_Apprenticeship_Program_(USMAP).pdf. See p. 8 for utilitiesman example.
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Table 2. Active Apprentices in Registered Programs by Industry for FY2019
Data are limited to federal y registered programs
Industry
Active Apprentices
Share
Construction
191,426
67.8%
Public Administration
19,300
6.8%
Manufacturing
17,334
6.1%
Transportation and Warehousing
16,162
5.7%
Utilities
8,729
3.1%
Health Care and Social Assistance
6,958
2.5%
Educational Services
5,758
2.0%
Othera
16,828
6.0%
Total
282,495
100.0%
Source: Department of Labor, Registered Apprenticeship National Results Fiscal Year 201 9, https://doleta.gov/
oa/data_statistics.cfm.
Notes: Table is limited to the states administered by the U.S. Department of Labor and nationally registered
apprenticeship programs.
a. Total of industries with less than 1.5% of total apprentices.
Recent Federal Activity
While registered apprenticeship has historical y been primarily a private sector initiative with
federal oversight, there have been several efforts in recent years to expand the federal role and
support apprenticeship more directly. These efforts have included grants that supported varied
approaches to expanding apprenticeship and efforts to establish a system that would support
industry-recognized apprenticeship programs that function independently from the registered
apprenticeship system.
Recent Grant Programs
In recent years, the federal government has supplemented its traditional registration and technical
support efforts with grants supported by multiple funding streams.
Grants Supported by Appropriated Funds
The laws that have provided appropriations to DOL for each of the past six fiscal years have
included provisions for DOL funding “to expand opportunities” relating to registered
apprenticeship “through grants, cooperative agreements, contracts, and other arrangements.”
Appropriations were $90 mil ion in FY2016 and increased each year, reaching $185 mil ion in
FY2021. (See Table 3.) The apprenticeship funds were typical y available through the end of the
DOL program year that aligned with the appropriated fiscal year (e.g., FY2018 funds were
available through the end of program year 2018, which ended June 30, 2019).
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Table 3. Appropriated Funds for Apprenticeship Expansion, FY2016-FY2021
Funding Level
Fiscal Year
($ in millions)
Public Law
2016
$90
P.L. 114-113
2017
$95
P.L. 115-31
2018
$145
P.L. 115-141
2019
$160
P.L. 115-245
2020
$175
P.L. 116-94
2021
$185
P.L. 116-260
Source: CRS analysis of specified laws.
Notes: Applicable laws provided appropriations to the Department of Labor for the fiscal year.
The appropriated funds have supported a variety of apprenticeship-related initiatives and the
specific activities have varied from one year to the next.25 The largest portions of the funds have
supported a series of grants to state agencies. These grants have supported various state-directed
activities, including efforts to increase the number of apprenticeships, expand the range of
industries that utilize apprenticeship, and integrate apprenticeship into state workforce
development and education strategies.
The most recent state grants were awarded in June 2020 to 42 states and territories.26 Total
funding was about $80.6 mil ion and the funds were from FY2019 appropriations.27 Funding was
divided into two tiers. Tier I funding provided a base level ($450,000 to states and $300,000 to
territories) to al applicants that met the application requirements. Tier II funding supplemented a
grantee’s Tier I funds and provided additional funding to grantees that implement “improvements
and innovations” to registered apprenticeship programs in their state.28
The prior round of state grants were announced in May 2019. Total funding was $73 mil ion and
the funds were from FY2018 appropriations.29 Eligible applicants were state agencies (one per
state as specified by the governor). The announcement specified that funds would be al ocated to
states and territories via formula.
Other activities supported by the appropriated funds included about $42 mil ion in Youth
Apprenticeship Readiness Grants, which were awarded in June 2020 using funds appropriated for

25 DOL publishes a list of active grants and contracts related to apprenticeship at https://www.apprenticeship.gov/
investments-tax-credits-and-tuition-support/active-grants-and-contracts.
26 In February 2021, DOL announced a forthcoming “State Apprenticeship Expansion, Equity, and In novation Grant
Program” for spring 2021. T he grants are expected to support “Governor-led, state initiatives that are expanding,
diversifying and transforming registered apprenticeship.” See https://www.apprenticeship.gov/investments-tax-credits-
and-tuition-support/open-funding-opportunities. As of this writing, a Funding Opportunity Announcement has not been
issued.
27 U.S. Department of Labor, “U.S. Department of Labor Awards More T han $80 Million in Grants to Expand
Registered Apprenticeship in 42 States and T erritories,” June 30, 2020, https://www.dol.gov/newsroom/releases/eta/
eta20200630-2.
28 Ibid. See also “Availability of Program Year 2019 Funding for State Apprenticeship Expansion Grants, ‘Building
State Capacity to Expand Apprenticeship through Innovation’,” T raining and Employment Guidan ce Letter No. 15-19,
April 14, 2020, https://wdr.doleta.gov/directives/attach/TEGL/T EGL_15-19.pdf.
29 U.S. Department of Labor, “Availability for Program Year 18 Funding for St ate Apprenticeship Expansion,”
T raining and Employment Guidance Letter 17 -18, May 3, 2019, https://www.doleta.gov/grants/pdf/T EGL_17-18.pdf.
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FY2019. The 14 grantees included public and private entities and the grants aimed to “increase
participation by youth, ages 16 to 24, in new or existing Registered Apprenticeship Programs.”30
Grants Supported by H-1B Training Funds
When sponsoring temporary foreign workers on H-1B visas, employers pay a fee that is
subsequently al ocated to DOL to support training programs.31 The department has some
flexibility in choosing the exact activities that are supported by these funds. Statute specifies that
the funding must support training in “high growth industries and economic sectors.”32 In recent
years, appropriations laws have further specified that the funds must be used for grants intended
to support training in occupations and industries for which employers are using H-1B visas to hire
foreign workers.33
DOL has used this funding stream to support a variety of grants. In June 2019, DOL solicited
apprenticeship grants using this funding stream.34 These grants were made available to various
educational entities, industry or employer associations, labor unions, or labor management
organizations. While the grant targeted apprenticeship as a training strategy, it did not limit grants
to registered apprenticeships. Similar to the prior round of grants, these grants focused on
developing apprenticeship in occupations and industries that utilize H-1B visas. Approximately
$100 mil ion in grants were awarded to public-private apprenticeship partnerships in February
2020.35
In 2018, DOL used this funding to solicit grants to expand apprenticeship in industries and
occupations that rely on H-1B visas and have not traditional y used apprenticeship as a workforce
development strategy.36 The grants were awarded to institutions of higher education (or consortia
thereof) working in partnership with industry associations or consortia of employers. Grant funds
could be used for the development or expansion of apprenticeship programs. The solicitation did
not explicitly limit funding to registered apprenticeship programs. Applications for this grant
closed in October 2018. DOL awarded approximately $184 mil ion in grants to 23 partnerships in
June 2019.37

30 U.S. Department of Labor, “U.S. Department of Labor Announces Over $42 Million in Youth Apprenticeship
Readiness Grant Awards to Increase Youth Participating in Registered Apprenticeships,” June 30, 2020,
https://www.dol.gov/newsroom/releases/eta/eta20200630-1.
31 See 8 U.S.C. §1356(s)(2). H-1B visas typically require a bachelor’s degree and are for temporary workers in
“specialty occupations,” an employment category closely associated with science, technology, engineering, and
mathematics (ST EM) fields, but not limited to them. For more information, see CRS Report R43735, Tem porary
Professional, Managerial, and Skilled Foreign Workers: Policy and Trends
.
32 See 29 U.S.C. §3224a(4).
33 For example, see Section 104 of the “General Provisions” of the Departments of Labor, Health and Human Services,
and Education, and Related Agencies Appropriations Act portion of the Consolidated Appropriations Act, 2017 ( P.L.
115-31).
34 Department of Labor, Funding Opportunity FOA-ET A-19-09, https://www.grants.gov/web/grants/view-
opportunity.html?oppId=317245.
35 U.S. Department of Labor, “U.S. Department of Labor Announces Nearly $100 Million in Apprenticeship Grants to
Close the Skills Gap,” February 18, 2020, https://www.dol.gov/newsroom/releases/eta/eta20200218.
36 U.S. Department of Labor; FOA-ET A-18-08; “Scaling Apprenticeship T hrough Sector-Based Strategies;”
https://www.doleta.gov/grants/docs/FOA-ET A-18-08.pdf.
37 Department of Labor; “U.S. Department of Labor Makes Major Announcements on Apprenticeship Expansion;”
June 24, 2019; https://www.dol.gov/newsroom/releases/eta/eta20190624.
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In 2015, DOL used $175 mil ion of the H-1B training funds for American Apprenticeship
Initiative Grants. These grants were awarded to partnerships of public and private entities to
create new registered apprenticeship programs and expand existing programs.38 A DOL-
commissioned report on these grants was issued in December 2020.39
Industry-Recognized Apprenticeship Programs (IRAP)
The Trump Administration promulgated regulations establishing a system for Industry-
Recognized Apprenticeship Programs (IRAP).40 This system was established under the same
provisions of the National Apprenticeship Act that authorize the registered apprenticeship system.
The IRAP system was intended to operate in paral el with the existing registered apprenticeship
system. In February 2021, the Biden Administration directed DOL to consider rules reversing the
IRAP regulations.
Trump Administration and Establishment of IRAP Regulations
In June 2017, President Trump issued Executive Order (EO) 13801.41 Among other directives, the
EO instructed the Secretary of Labor to “consider proposing regulations” that “reflect an
assessment of whether” to modify the registration process to increase the role of nongovernment
entities.
In June 2019, DOL published a proposed rule in the Federal Register to establish a process for
recognizing new Standards Recognition Entities (SREs) that would be authorized to approve
IRAPs as being in compliance with federal standards.42 A final rule with a similar framework was
published in March 2020.43
The standards that SREs would apply to IRAPs were specified in the rule. The new system of
SREs and IRAPs operates as an alternative system, co-existing with the established registered
apprenticeship system in which governmental agencies approve apprenticeship programs as being
in compliance with federal standards. The new IRAP system does not have a direct impact on the
existing registered apprenticeship system and associated processes.

38 See announcement of awards at https://www.dol.gov/apprenticeship/pdf/American-Apprenticeship-
FACT SHEET .pdf.
39 National Governors Association, Registered Apprenticeship Reimagined: Lessons Learned from the American
Apprenticeship Initiative
, December 2020, https://www.apprenticeship.gov/sites/default/files/national-governors-
association-aai-report.pdf.
40 For a more detailed discussion on the IRAP rule, see CRS Report R46622, Final Rule on Industry-Recognized
Apprenticeship Program s
.
41 See the full text at https://www.gpo.gov/fdsys/pkg/FR-2017-06-20/pdf/2017-13012.pdf.
42 T he full proposed rule was published as pages 29970-30020 in Vol. 84, No. 122 of the Federal Register.
See https://www.federalregister.gov/documents/2019/06/25/2019-13076/apprenticeship-programs-labor-standards-for-
registration-amendment-of-regulations.
43 T he full final rule was published as pages 14294-14392 in Vol. 85, No. 48 of the Federal Register. See
https://www.govinfo.gov/content/pkg/FR-2020-03-11/pdf/2020-03605.pdf.
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The final rule took effect May 11, 2020. On September 23, 2020, DOL announced the first group
of SREs, indicating that 18 SREs had been approved to recognize IRAPs in 20 industries and
nearly 130 occupations.44 The first IRAP program was announced on October 1, 2020.45
Biden Administration Action
In February 2021, as part of efforts to expand support for the registered apprenticeship system,
the Biden Administration and DOL acted to slow the implementation of the IRAP system and
consider its elimination. The Biden Administration rescinded EO 13801, which informed the
establishment of the IRAP rules and accompanying system. The Administration further asked
DOL to “consider new rulemaking to reverse these programs.”46
The same day, DOL announced that it was suspending review of new or pending applications for
SREs. DOL stated that this suspension would have “no impact on the 27 SREs currently
approved,” that “al IRAPs recognized by an SRE wil continue to perform their IRAP functions,”
and that “previously approved SREs may also continue to recognize additional IRAPs.”47
Legislative Activity in the 117th Congress
On February 5, 2021, the House passed H.R. 447, the National Apprenticeship Act of 2020. As of
the cover date of this report, the bil has seen no action in the Senate. H.R. 447 in the 117th
Congress was substantively similar to H.R. 8294 in the 116th Congress, which also passed the
House.48
H.R. 447 would amend and substantial y expand the National Apprenticeship Act. It would codify
a number of existing definitions and administrative practices related to apprenticeship and
authorize appropriations for several new funding streams for FY2022 through FY2026.
Major components of the bil would do the following:
 establish a permanent statutory authorization for OA at DOL and authorize
dedicated funding for the office;49
 establish statutory definitions for pre-apprenticeship and youth apprenticeship;
among other criteria, these programs would have to be aligned with a registered
apprenticeship program;50

44 U.S. Department of Labor, “U.S. Department of Labor Announces First Group of Standards Recognition Entities for
Industry-Recognized Apprenticeship Programs,” September 23, 2020, https://www.dol.gov/newsroom/releases/eta/
eta20200923.
45 U.S. Department of Labor, “U.S. Department of Labor Announces First Industry -Recognized Apprenticeship
Program,” October 1, 2020, https://www.dol.gov/newsroom/releases/eta/eta20201001-0.
46 T he White House, “Fact Sheet: Biden Administration to T ake Steps to Bolster Registered Apprenticeships,”
February 17, 2021, https://www.whitehouse.gov/briefing-room/statements-releases/2021/02/17/fact-sheet-biden-
administration-to-take-steps-to-bolster-registered-apprenticeships/.
47 U.S. Department of Labor, “U.S. Department of Labor Undertakes Several Actions to Strengthen Registered
Apprenticeship Program, Eliminate Duplication,” February 17, 2021, https://www.dol.gov/newsroom/releases/eta/
eta20210217.
48 T he House Education and Labor Committee issued a committee report for H.R. 8294 in the 116th Congress. See
H.Rept. 116-567. H.R. 447 did not have a committee markup and a report has not been issued on the bill.
49 See H.R. 447, Section 111.
50 Ibid., Section 2.
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 define the national apprenticeship system as consisting of registered
apprenticeship programs, pre-apprenticeship, and youth apprenticeship;51 this
definition would effectively exclude IRAP programs;
 codify criteria for apprenticeable occupations and standards for registered
apprenticeship programs;52 these provisions largely reflect similar existing
regulatory policy;
 authorize grants for State Apprenticeship Agencies and State Offices of
Apprenticeship in states that have not established an SAA;53 and
 authorize competitive grants to eligible partnerships for the purposes of
expanding apprenticeship (including creating new programs in nontraditional
industries and occupations), encouraging employer participation in the national
apprenticeship system, supporting intermediaries, and strengthening alignment
between apprenticeship programs and secondary and postsecondary education.
The authorization level for these grants is $400 mil ion in FY2022 and gradual y
increases to $800 mil ion in FY2026.54 Funds authorized for these grants account
for more than three-quarters of the total funds authorized under the bil .

51 Ibid., Section 2.
52 Ibid., Sections 121-122.
53 Ibid., Section 113.
54 Ibid., Sections 201-204.
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Appendix. Federal Funding Streams that May
Directly Support Apprenticeship
In addition to the activities at the Department of Labor’s Office of Apprenticeship, there are other
federal funding streams that can directly support apprenticeship or individual apprentices. These
funding streams most frequently support other means of human capital development, but they can
also support apprenticeship in some circumstances. This section highlights some federal funding
streams in which the administering departments have issued guidance on how to utilize funds for
apprenticeship. It is likely that there are other federal funding streams that could support
apprenticeship in certain circumstances.55
Workforce Funding through the Workforce Innovation and
Opportunity Act
The Workforce Innovation and Opportunity Act (WIOA) authorizes formula grants to state
workforce agencies to support job training and career services.56 WIOA funding is administered at
the state and local levels by Workforce Development Boards (WDBs), which are partnerships of
local employers, training providers, and other workforce stakeholders. State and local WDBs
have autonomy to support workforce development through a variety of activities.
Statute and guidance have specified a number of ways in which WDBs can use WIOA funds to
support apprenticeship.57 For example, the on-the-job training provisions of WIOA al ow WDBs
to reimburse apprenticeship sponsors for a portion of wages paid to apprentices. The training
provisions of WIOA al ow funds to be used for expenses related to an apprenticeship program’s
related instruction.
In addition to potential y providing direct financial support for apprenticeship programs, WIOA
contains several administrative provisions that institutional y integrate local registered
apprenticeship programs into state workforce systems. WIOA specifies that there must be a
representative from a registered apprenticeship program on each state and local WDB. These
boards are responsible for recognizing local workforce programs that meet local needs and
approving those programs for WIOA funding. Registered apprenticeship programs are
automatical y eligible for WIOA funding; they do not need to be approved by a WDB.
GI Bill and Veterans Education Benefits
Individuals eligible for a GI Bil , including former members of the Armed Forces, can typical y
use their benefits while pursuing an approved apprenticeship. For example, veterans who use the
Post-9/11 GI Bil (the most common education benefit for recent veterans) while pursuing a

55 Additional examples are included in DOL’s Federal Resources Playbook for Registered Apprenticeship , available at
https://www.apprenticeship.gov/sites/default/files/playbook.pdf.
56 For more information on WIOA and the funding streams and state workforce agencies it authorizes, see CRS Report
R44252, The Workforce Innovation and Opportunity Act and the One-Stop Delivery System .
57 For a more-detailed discussion of the integration of WIOA and registered apprenticeship, see Department of Labor
T raining and Guidance Letter 13-16, “ Guidance on Registered Apprenticeship Provisions and Opportunities in the
Workforce Innovation and Opportunity Act (WIOA)”, issued January 12, 2017, https://wdr.doleta.gov/directives/
corr_doc.cfm?docn=9125. Section 7 of the T EGL explicitly aligns allowance uses of WIOA funds with regist ered
apprenticeship activities.
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registered apprenticeship program qualify for a housing al owance while participating in the
apprenticeship.58 The amount of the housing al owance varies by geographic location and other
factors. Post-9/11 GI Bil participants in a registered apprenticeship program receive up to 100%
of the housing al owance for the first six months of the program. The al owance then declines 20
percentage points every six months until reaching 20%. The declines in the housing al owance are
intended to align approximately with scheduled wage increases in the apprenticeship program.59
Post-9/11 GI Bil participants pursuing apprenticeship more than half-time also receive a books
and supplies stipend.
In cases where GI Bil -eligible apprentices are required to pay for their related instruction, an
apprentice may also be able to use his or her GI Bil benefits to cover tuition and fees associated
with related instruction.
Federal Student Aid
In some circumstances, individual apprentices may be able to access federal student aid (FSA)
funds such as Pel Grants or subsidized student loans. Eligibility for FSA funds is largely
contingent on whether the apprenticeship (or a component of the apprenticeship, such as the
related instruction component) is an academic program that is eligible for federal student aid.60
Notably, registration of an apprenticeship program does not necessarily qualify it for federal
student aid, and it is possible that there are apprenticeship programs that are not registered by a
registration agency but are eligible for FSA funds.
Apprenticeship programs (or components thereof) that are eligible for federal student aid must (1)
lead to a degree, diploma, certificate, or other recognized credential; (2) be provided by an
eligible institution; and (3) meet program length requirements in terms of credit hours or clock
hours.61 For need-based FSA, a student must also meet the financial criteria for a given
program.62
The FSA eligibility criteria can be applied separately to the on-the-job training and related
instruction portions of an apprenticeship. For example, the related instruction portion of a
program may be eligible while the on-the-job training portion is not. The on-the-job training
portion of an apprenticeship program can be eligible for FSA if the on-the-job training portion of
the program is for qualified credit from an FSA-eligible institution. Guidance specifies that there
are no federal limits on the percentage of a qualified program that may consist of on-the-job
training, so long as the training is provided by the institution of higher education. Using these

58 For more information on the Post-9/11 GI Bill, see CRS Report R42755, The Post-9/11 GI Bill: A Primer.
59 See Department of Veterans’ Affairs “On-T he-Job T raining and Apprenticeship,” https://www.benefits.va.gov/gibill/
onthejob_apprenticeship.asp.
60 More details on FSA in the context of apprenticeship is available in Department of Education Dear Colleague Letter
GEN-14-22, “ Apprenticeships and Federal Student Aid Programs,” issued December 18, 2014, https://ifap.ed.gov/
dpcletters/GEN1422.html.
61 Ibid., p. 2.
62 A student’s eligibility for need-based aid is determined by the program’s cost of attendance and the student’s
expected family contribution (EFC). T he EFC is calculated on the basis of information provided by the student and
applicable family members on the Free Application for Federal Student Aid (FAFSA). For more information on the
FAFSA and the EFC calculation, see CRS Report R44503, Federal Student Aid: Need Analysis Form ulas and Expected
Fam ily Contribution
.
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criteria, on-the-job training that is either not for credit or is provided by an entity other than an
eligible institution (such as an employer) would not qualify for FSA.63
In limited cases, institutions may choose to use Federal Work Study (FWS) funding to cover a
portion of an apprentice’s wages during on-the-job training.64 If an institution chooses to include
apprenticeship employment as part of its FWS program, selected eligible students may receive
FWS wages for employment in the apprenticeship, even if the apprenticeship is not part of the
student’s educational program.65


Author Information

Benjamin Collins

Analyst in Labor Policy



Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should n ot be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
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copy or otherwise use copyrighted material.


63 In some cases, an institution of higher education may contract out a portion of the on -the-job training to an outside
entity. If an entity other than the institution of higher education provides a portion the on-the-job training, that portion
must be 25% or less of the program. With permission of the accrediting agency of the institution of higher education,
the outside entity may provide more than 25%, but less than 50%, of the program.
64 Unlike some other forms of aid, FWS funds are allocated to institutions of higher education, not individual students.
T he institutions are responsible for allocating the funds to qualified programs and students.
65 For more information on potential uses of FWS funds for apprenticeship, see the aforementioned Dear Colleague
Letter GEN-14-22.
Congressional Research Service
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