Introduction
The Division of Apprentice Standards (DAS) within the Massachusetts Executive Office of Labor and Workforce Development (EOLWD) is responsible for the oversight of Registered Apprenticeship and Pre-Apprenticeship programs in the Commonwealth. Registered Apprenticeships are structured, work-based programs that provide individuals with paid work experience, technical instruction, mentorship, on-the-job training, and a nationally recognized credential. Registered Apprenticeship is a proven and effective workforce development model that helps employers of all sizes to attract, train, and retain diverse talent.
The Healey-Driscoll Administration has led major new investments to expand Registered Apprenticeship to high-growth industries and to enhance diversity, equity, and inclusion in the construction and building trades. DAS currently services more than 900 Registered Apprenticeship programs supporting over 10,000 apprentices annually.
Increasing access and opportunity for Massachusetts residents and new arrivals is critical in attracting, retaining, and developing the talent industries and employers need today and for the Commonwealth’s future. Nationwide, there are over 640,000 active apprentices in more than 20 industries encompassing over 1,000 apprenticeable occupations. As Registered Apprenticeship programs expand beyond traditionally recognized occupations like construction trades and into sectors such as early childhood education, healthcare, and life sciences, DAS is committed to supporting high-quality programs that are inclusive and accessible.
DAS has developed this updated five-year strategic plan to:
- align its work with its mission, vision, and set of values;
- clearly communicate goals and objectives to achieve this vision; and
- track progress towards these goals.
This strategic plan was developed over several months and included the following key activities.
- Interviews with over two dozen internal and external program stakeholders;
- Strengths, Weaknesses, Opportunities, and Threats (SWOT) analysis incorporating interviews and feedback with a matrix that is included in this document; and
- Strategic planning workshops convened by DAS leadership to review the interview and research findings and to develop the goals, objectives, indicators, and actions steps included in this plan.
As part of its strategic planning efforts, DAS refreshed its mission, vision, and values. The mission states what DAS does to achieve its vision and focuses the organization as decisions are made and work is carried out. The vision serves as a statement of the desired future state, both for DAS and for the Commonwealth. Values are principles that help define DAS’ approach to its work.
Mission
The Division of Apprentice Standards promotes, develops, and supports Registered Apprenticeship programs in Massachusetts. We help create rewarding career pathways for job seekers and empower employers to build a diverse and skilled workforce.
Vision
Innovative, high-quality apprenticeship programs help develop diverse talent and drive a more affordable, competitive, and equitable economy in Massachusetts.
Values
Innovation: We believe in dynamic and impactful Registered Apprenticeship programs that adapt to meet the evolving needs of industries.
Inclusion: We believe in diverse and meaningful Registered Apprenticeship programs that tap into the talents of underrepresented populations.
Collaboration: We believe in building strong partnerships with Registered Apprenticeship sponsors and intermediaries to develop best practices and leverage our collective expertise.
Customer Service: We believe in delivering responsive support and guidance to all our stakeholders to ensure their success throughout the Registered Apprenticeship journey.
Current State
Current DAS Structure
The Division of Apprentice Standards was created statutorily as part of the Department of Labor Standards (DLS). It remains officially part of DLS, though it now operates independently. The Division includes four main business units, supported by an Administrative Team.
Summary of Existing Operations
- Liaison Team
- Operations Team
- Quality Assurance Team
- Grants Team
The Liaison team members act as the marketing and business development team to grow Registered Apprenticeships programs in both traditional and expansion sectors, including underrepresented populations.
The Liaison team provides new sponsor application guidance and technical assistance, and reviews program
applications.
The Operations team members work with existing and newly registered programs to offer assistance and guidance with documentation, apprentice registrations, cancellations, completions, and post-program approval assistance. The Operations team produces apprentice cards and renewals.
The Quality Assurance team members ensure that Registered Apprenticeship programs are compliant with state and federal requirements. The Quality Assurance team is responsible for the documentation of Related Technical Instruction (RTI) and On the Job Training (OJT) hours, and overall program quality.
The Grants team monitors Registered Apprenticeship and Pre-Apprenticeship grant recipients to provide technical assistance and ensure compliance with goals and reporting requirements.
Recent Accomplishments
In 2018, the Executive Office of Labor and Workforce Development published “Apprenticeship Expansion in Massachusetts: Strategic Plan.” This document summarized an effort to engage EOLWD partners and develop a set of recommendations intended to support the diversification and expansion of Registered Apprenticeship in the Commonwealth. Since that time, the Executive Office of Labor and Workforce Development has taken a number of steps forward, including:
- Increasing staffing and restructuring DAS operations to support Registered Apprenticeship.
- Serving more than 900 Registered Apprenticeship Programs and 10,000 apprentices annually.
- Leveraging an increase in state funding for Registered Apprenticeship expansion in new sectors.
- Expanding industries eligible for Registered Apprenticeship tax credits.
- Supporting statewide apprenticeship intermediary hubs in key expansion industries.
- Revitalizing the Massachusetts Apprenticeship Council.
SWOT Analysis / Priority Areas
As part of its strategic planning efforts, DAS engaged internal and external partners to learn more about their experiences with the Division and with Registered Apprenticeship in the Commonwealth.
- Internal partners included current DAS staff and leadership, as well as members of the Executive Office of Labor and Workforce Development
- External partners included current Registered Apprenticeship and Pre-Apprenticeship sponsors, intermediary sponsors, state-wide trade organizations, and representatives of union and non-union Registered Apprenticeship programs from building trades and expansion sectors.
More than twenty interviews and additional research yielded the following analysis of the Division’s areas of strength, weakness, opportunity and threat (SWOT). This SWOT analysis provides context for the goals and objectives that are included in the following section of this plan. Highlights from the SWOT are included on the following page. The full SWOT analysis can be found in the Appendix.
STRENGTHS
| WEAKNESSES
|
|---|---|
OPPORTUNITIES
| THREATS
|
Goals & Objectives
The goals and objectives included here are the core elements of the strategic plan, and are intended to support DAS’ mission, vision, and values, and to create a structure for the activities required to achieve them. This section includes the following components:
- Focus Areas - Three overarching areas that encompass DAS’ desired outcomes for this strategic plan, and within which DAS has organized plan activities.
- Goals - The highest level of things that DAS wants to accomplish, internally and externally. Goals chart the work to carry out the mission in the coming five years.
- Objectives – Specific activities that determine how DAS will accomplish its goals. Objectives may include broader projects, discrete activities, or workstreams required to achieve a specific goal.
- Key Performance Indicators (KPIs) – Used to track progress toward achieving the goals and objectives outlined in this plan. DAS will set the baselines and targets for each of these indicators. KPIs will be reviewed and updated on an annual basis.
Focus Area 1: Build Capacity
DAS will continue adding resources and refining processes to support highly effective Registered Apprenticeship and Pre-Apprenticeship programs.
Goal 1: Review and redesign processes to deliver high-quality customer service and support.
- Objective 1.1: Review and document standard operating procedures and key process flows for all aspects of apprenticeship and grants administration.
- Objective 1.2: Cultivate a culture of continuous improvement across all Division activities.
- Objective 1.3: Update functional organizational structure to better meet needs of sponsors and employers.
KPIs
- 85% of program registrations are completed within 30 days of the submission of a completed application.
- 90% of inquiries are responded to within 3 business days.
Goal 2: Build internal capacity and knowledge among new and existing staff members.
- Objective 2.1: Implement structured training and mentorship plan to help ensure staff members have strong working knowledge of Registered Apprenticeship policies, regulations and administration priorities.
- Objective 2.2: Embed customer service principles for all levels of staff.
- Objective 2.3: Increase capacity to effectively solicit, fund, manage, and monitor state and federal grants.
KPIs
- 100% of new staff have received comprehensive training within 60 days of onboarding.
- 50% of current staff receive “refresher” training each year.
Goal 3: Revamp apprenticeship registration system.
- Objective 3.1: Conduct need assessment and develop project implementation plan for a user- friendly registration portal and database, including grants administration component.
- Objective 3.2: Engage external stakeholders and develop a change management plan for new system implementation and adoption.
KPIs
- Conduct listening sessions with ten external stakeholders each year, including building trade and expansion sector sponsors and intermediaries.
- Increase self-service utilization for system users.
- Reduce number of users requiring helpdesk (or similar) assistance.
Focus Area 2: Expand Registered Apprenticeship
DAS will work to increase the number and type of Registered Apprenticeship and Pre-Apprenticeship programs.
Goal 4: Cultivate and promote Registered Apprenticeship programs in expansion industries.
- Objective 4.1: Market to expansion sector employers, including healthcare, advanced manufacturing, technology, financial services, education, insurance, clean energy, and life sciences.
- Objective 4.2: Target industry “first movers” to become intermediary sponsors.
KPIs
- Increase total number of apprentices participating in expansion industry programs on an annual basis.
- Increase total number of sponsors from target industries.
- Increase total number of active occupations.
Goal 5: Expand marketing and communication efforts.
- Objective 5.1: Build awareness among employers and workers about the benefits of Registered Apprenticeship through updated marketing tools.
- Objective 5.2: Develop easy-to-use tools (e.g., checklist, diagrams, plain language forms) for employers that clarify registration and other key processes associated with Registered Apprenticeship.
- Objective 5.3: Create standard guidelines on the role of intermediaries in Registered Apprenticeship.
KPIs
- Increase brand awareness among potential partners and customers.
- Increase understanding of the benefits of apprenticeship among potential sponsors and employers.
Goal 6: Create and strengthen partnerships that will build awareness and lead to expansion.
- Objective 6.1: Build and expand on successful examples of Workforce Boards and trade organizations serving as sponsors or intermediaries, with a focus on the expansion sector.
- Objective 6.2: Develop outreach plan for unregistered apprenticeship programs.
- Objective 6.3: Align with educational institutions and education-focused trade organizations to simplify, standardize, and clarify processes for credentialing, standards building, and Pre-Apprenticeship.
- Objective 6.4: Collaborate with other state agencies to incorporate Registered Apprenticeship requirements into grants, contracts and programs.
- Objective 6.5: Recruit new/more intermediary sponsors.
KPIs
- Increase number of Workforce Boards serving as sponsors or intermediaries.
- Increase total number of Pre-Apprenticeship programs supported by educational organizations.
- Increase total number of intermediaries in expansion industries.
Goal 7: Promote incentives for employers to establish Registered Apprenticeship programs.
- Objective 7.1: Emphasize value of Registered Apprenticeship as a cost-saving and talent-pipeline strategy.
- Objective 7.2: Expand awareness and appeal of state and federal incentives and funding sources for employers, including potential adjustments to state sources to incentivize new programs.
- Objective 7.3: Streamline grant making process for expansion industries. Align grant awards and performance periods to yield predictability and support scalability for new and returning grantees.
KPIs
- Increase utilization of Registered Apprenticeship Tax Credit (RATC).
- Increase number of new Registered Apprenticeship programs funded through state grants.
- Increase number of grant funded programs meeting grant award goals.
Goal 8: Expand Pre-Apprenticeship programs.
- Objective 8.1: Clarify and document the resources, processes and regulations needed to run a successful pre-apprenticeship program.
- Objective 8.2: Build framework and program processes for Pre-Apprenticeship to help sponsors develop programs.
- Objective 8.3: Increase collaboration with education providers regarding Pre-Apprenticeship.
KPIs
• Increase total number of Pre-Apprenticeship programs.
Focus Area 3: Improve Quality
DAS will lead and support efforts to improve the efficacy of apprenticeship programs.
Goal 9: Update state regulations to align with new USDOL rules and accommodate expansion needs.
- Objective 9.1: Identify regulatory changes that would best support Registered Apprenticeship expansion, align processes and requirements across systems, and maintain alignment with USDOL preferences and funding requirements.
- Objective 9.2: Develop policies and procedures that support updated regulations.
- Objective 9.3: Leverage USDOL Final Rule changes (once formalized) to promote expansion activities.
KPIs
- Percentage of regulatory review completed.
Goal 10: Expand DEIA initiatives.
- Objective 10.1: Leverage DEIA Apprenticeship Navigators to provide training and awareness re: DEIA initiatives among internal staff and external sponsors.
- Objective 10.2: Develop regionally focused strategies for underrepresented employers and apprentices.
- Objective 10.3: Support compliance with USDOL requirements around demographics capture, recruitment strategy reporting, utilization review and Affirmative Action Plans.
KPIs
- Increase number of employers from underrepresented populations with Registered Apprenticeship and Pre- Apprenticeship Programs.
- Increase participation from underrepresented population members as apprentices or pre-apprentices.
- Increase participation from underrepresented population members within construction trades.
- Alignment of completion percentages for underrepresented populations with those of the total population.
Goal 11: Increase peer collaboration related to Registered Apprenticeship.
- Objective 11.1: Partner with stakeholders to create and support communities of practice/peer employer groups between current and potential sponsors and intermediaries.
- Objective 11.2: Maintain a Massachusetts presence at national conferences and networking events to stay current with national trends and best practices.
- Objective 11.3: Educate workforce groups and peer networks on the Registered Apprenticeship model.
KPIs
- Increase total number of communities of practice meeting regularly.
- Number of intermediary convenings attended by DAS staff per year.
Action Plan
Governance and Ongoing Implementation
Over the course of this five-year strategic plan, DAS will manage the governance and implementation of the plan via annual and quarterly reviews.
Annual Activities:
- Identify initiatives for the upcoming year
- Conduct a review of performance measurements and KPIs
- Report out on progress to internal and external partners
Quarterly Activities:
- Check progress on all established KPIs
- Assess overall progress, impact, and lessons learned
Year One Action Plan
As part of its strategic planning efforts, DAS developed a Year One Action Plan. DAS identified specific steps it will take toward accomplishing each Goal.
Goal 1: Review and redesign processes to deliver high-quality customer service and support.
| Action | Start | End |
|---|---|---|
| Initiate business process review effort | Q2 | Q3 |
| Document "first round" of standard operating procedures | Q3 | Q4 |
Goal 2: Build internal capacity and knowledge among new and existing staff members.
| Action | Start | End |
|---|---|---|
| Develop training plans for DAS staff, incorporating cross- unit training and subject matter continuing education | Q1 | Q3 |
| Update and standardize grants management processes | Q2 | Q4 |
Goal 3: Revamp apprenticeship registration system.
| Action | Start | End |
|---|---|---|
| Develop change management plan for new registration portal and database | Q1 | Q4 |
| Implement new system and support partners with adoption | Q4 | Ongoing |
Goal 4: Cultivate and promote Registered Apprenticeship programs in expansion industries.
| Action | Start | End |
|---|---|---|
| Develop sector-specific employer marketing materials | Q2 | Q3 |
| Expand outreach activities focused on expansion sector employers | Q1 | Q4 |
Goal 5: Expand marketing and communication efforts.
| Action | Start | End |
|---|---|---|
| Finalize and promote tools for employers (including Employer Toolkit) | Q1 | Q2 |
| Deploy updated branding and marketing tools | Q1 | Q3 |
Goal 6: Create and strengthen partnerships that will build awareness and lead to expansion.
| Action | Start | End |
|---|---|---|
| Identify and highlight examples of Workforce Boards and trade organizations as sponsors and intermediaries | Q1 | Q2 |
| Develop guidelines and training for the role of intermediaries | Q2 | Q4 |
| Conduct targeted outreach to unregistered programs and existing sponsors to register or add additional occupations | Q1 | Q4 |
| Continue to work with licensing boards to align requirements with those of Registered Apprenticeship programs | Q1 | Ongoing |
Goal 7: Promote incentives for employers to establish Registered Apprenticeship programs.
| Action | Start | End |
|---|---|---|
| Flag industries newly eligible for RATC to receive expanded outreach | Q2 | Q3 |
| Review and update targeting of state grants to expansion industries as needed | Q1 | Q3 |
| Compile and share list of agencies that can provide additional support or incentives for sponsors | Q2 | Q4 |
Goal 8: Expand Pre-Apprenticeship programs.
| Action | Start | End |
|---|---|---|
| Create guidance and framework for Registered Pre- Apprenticeship Programs and share with existing and potential sponsors | Q1 | Q4 |
| Develop best practices guide based on successful, High- Quality Registered Pre-Apprenticeship Programs | Q2 | Q4 |
Goal 9: Update state regulations to align with new USDOL rules and accommodate expansion needs.
| Action | Start | End |
|---|---|---|
| Initiate regulatory review and incorporate changes resulting from Final Rule | Q2 | Ongoing |
| Convene stakeholder discussions, including Apprenticeship Council, on revised regulations | Q3 | Q4 |
Goal 10: Expand DEIA initiatives.
| Action | Start | End |
|---|---|---|
| Onboard DEIA Apprenticeship Navigators and incorporate their responsibilities into DAS business processes | Q2 | Q4 |
| Develop internal and external DEIA trainings | Q3 | Ongoing |
| Review completion statistics and compare underrepresented populations to total population of apprentices | Q1 | Ongoing |
Goal 11: Increase peer collaboration related to Registered Apprenticeship.
| Action | Start | End |
|---|---|---|
| Facilitate peer-to-peer learning sessions between current and potential sponsors and intermediaries | Q1 | Q4 |
| Continue current best practices around regular convenings of sponsors and intermediaries | Q1 | Ongoing |
Appendix: SWOT Analysis
STRENGTHS
What does the Division do well? What resources, strengths, and planned initiatives can it draw on?
- DAS has successfully issued flexible grant funds to expand apprenticeships in Massachusetts.
- DAS staff are generally viewed as collaborative and supportive.
- Recent successes include expanding and diversifying apprenticeship in Massachusetts.
- DAS has made considerable organizational improvements since COVID.
- New leadership brings strong networks and familiarity with workforce and apprenticeship programs.
WEAKNESSES
Where could DAS improve? Where are resources needed?
- Many internal processes are manual, inefficient, and/or error prone, and are viewed as burdensome to sponsors.
- DAS staff members’ understanding of program needs varies and sponsors sometimes receive inconsistent information during registration process.
- Lack of alignment between licensing and apprenticeship requirements causes confusion and problems for sponsors and apprentices.
- Expansion trades feel the system is not set up to meet their needs.
- Funding available for Pre-Apprenticeship is not always sufficient to support programs.
- RAP incentives do not incentivize smaller start up programs – programs need to scale up before seeing benefits.
- The registration process could be streamlined; administrative requirements sometimes deter new employers.
- The ePlace system is challenging to use.
- Some specific statutory and regulatory issues are inhibiting the expansion or success of some programs.
OPPORTUNITIES
What opportunities are available to DAS? What trends could it seize on? How can it turn strengths into opportunities?
- The apprenticeship model is increasingly recognized as a worthwhile workforce solution beyond traditional trades.
- There has been increased funding for apprenticeship across the board (national, state). Emphasis has been placed on historically underserved populations.
- There remains a strong business case for apprenticeship across many industries that aligns with future labor needs.
- Significant appetite exists for some programs; applications go quickly for established programs.
- DAS has started the process to design and deploy an improved apprenticeship portal.
- DAS has started a process to enhance marketing and branding efforts.
- Increased planning and follow-up after public-facing events can help maintain momentum generated during these events.
- Existing connections between employers and intermediaries can be leveraged to expand programs.
- Intermediaries can help sponsors with administrative components of apprenticeship.
- DESE infrastructure re: minimum requirements for CTE apprenticeships is aligned to career clusters.
- New federal rules, if enacted, may create additional incentives and opportunities for employers and sponsors to create apprenticeship programs.
- Changes to DAS’ enabling statute and regulations could improve organizational structure.
THREATS
What external changes or trends could harm the Division? What risks could hinder the ability of DAS to fulfill its mission?
- There remains a perception among employers that Registered Apprenticeship is about compliance, paperwork, and government interference.
- Recipients of some apprenticeship grants require longer performance periods and / or more money to accomplish their goals.
- Employers may turn to unregistered apprenticeships to avoid administrative burdens associated with Registered Apprenticeship.
- In occupations with existing worker shortages, it is difficult to prioritize mentorship / apprentice training activities with limited qualified staff.
- Incentives don't necessarily meet the needs of employers seeking to set up a small- scale program.
- Low wages in some industries make apprenticeship difficult.
- Certification programs compete with Registered Apprenticeship programs.
- Grants may not establish sustainable apprenticeship programs.
- Programs have been developed that are not Registered Apprenticeships but are referred to as "apprenticeship."
- Employers don't always see or understand the benefits of apprenticeship in general.
- New federal rules could lead to changes to existing programs and potentially create confusion about administrative requirements.