Education and Workforce Development Mentoring and Apprenticeship Programs: Global Examples and Recommendations

HEP+ Technical Brief July 2018

with a particular focus on the Guatemalan Introduction context. To this end, the brief focuses on:

In Latin America and the Caribbean, many young 1. Workforce development systems people lack the skills required for employment; 2. Mentoring programs approximately one in five youth ages 15 to 24 are 3. Apprenticeship programs not in school and not working (De Hoyos, 2016). This gap is caused by several factors, one of which 4. Options beyond mentoring and is that early school dropout leads to a general apprenticeships lack of skills that hinders one’s ability to secure 5. Potential steps forward for Guatemala a formal-sector job. A deficit of basic academic skills carries over into adolescence and eventually into the labor market. Employers require some Workforce Development Systems minimal technical competencies, so even those individuals who remain in a traditional education Successful education and youth workforce system may face challenges in securing a technical development programs are built on a solid position, or fully understanding which skills are understanding of the workforce development needed in a given position or field. Unemployment landscape, particularly the demand-led aspects. among youth is a concern as it contributes to Strong institutions and linkages among actors intergenerational persistence of inequality and is create ecosystems that align workforce development linked to crime and violence; failing to address the programs with business needs, champion reforms, problem could prevent the region from exploiting and boost inclusive economic development. an emerging demographic window of opportunity Coordination and connection are the keys to making (De Hoyos, 2016). The fundamental challenge in the ecosystem work. Guatemala is that many youth leave school without developing the minimal technical competencies Many nations exhibit a disconnect between that employers require. Those that remain in educational systems and private sector needs. school do not have experience with the real labor In Latin America, about 50 percent of formal market. These gaps need to be addressed in firms cannot find candidates with the skills they order to provide youth access to employment and need, versus 36 percent of firms in Organisation improve the labor market. for Economic Co-operation and Development This technical brief, developed by the U.S. countries. In Guatemala, this statistic is 46 Agency for International Development (USAID)- percent (Manpower Group, 2015). In the United funded Health and Education Policy Plus (HEP+) States, 96 percent of university leaders claimed to project, features mentoring and apprenticeships be “extremely or somewhat confident” that their as two tools in an education and youth workforce institutions are preparing students for success development strategy that can facilitate a young in the workforce; meanwhile, only 11 percent of person’s journey from education to employment, U.S. employers believe that graduates have the 2 skills and competencies needed for employment • Cooperative education programs: (Wilson, 2015). supervised rotation programs arranged between a school or educational center and an In Guatemala, the organizations and individuals employer (for example, an engineering school involved in driving job growth are diverse, and a telecommunications firm), aimed at crossing economic, educational, age, and high school and college students. civil society boundaries. At the national level, organizations drive competitiveness and export • Internship programs: geared to students growth strategies (for example, the National seeking real-world experiences for short Competitiveness Program, or PRONACOM, periods of time. They are generally unpaid, and the Foundation for the Development of entry-level positions intended to provide Guatemala, or FUNDESA). At the sectoral practical skills and the opportunity to learn level, sector associative bodies coordinate about an occupation. growth strategies, business support programs, • Career counseling programs: provide and sector-specific workforce initiatives trained counselors with a range of tools to (for example, the Export Association of objectively advise a person to make good career Guatemala, or AGEXPORT, and the Business decisions, depending on personality and ability. Process Outsourcing Association). At the business level, firms may have elements of This brief examines mentorships and typical functions associated with workforce apprenticeships as potential tools to bridge development programs such as, “recruit, the gap from education to employment in train, and retain” functions in-house. On the Guatemala. The Guatemalan Ministry of education side, schools, vocational institutes, Education’s Plan Estrategico de Educacion and out-of-school youth programs provide 2016-2020 emphasized the importance of classroom and hands-on training (for example, implementing these programs to increase the Technical Institute of Training and coverage of out-of-school education in Productivity, or INTECAP, and the Directorate conjunction with accelerated education of Extracurricular Education, or DIGGEX). At programs (Ministry of Education, 2016). the community level, youth services, such as those offered by offered by nongovernmental Mentoring Programs organizations, foundations, and donor projects, often provide psychosocial support and some A mentor is a person who teaches, helps, or initial career guidance. Youth workforce gives advice to a less experienced person who development programs can be a critical catalyst is often younger than him- or herself (called for safe, stable societies and sustainable, broad- a mentee). The core aspect of mentoring is based economic growth. spending time together on a regular basis. Mentoring programs are flexible and can be Education, civil society, and private sector tailored to fit a social need (such as reaching actors have many types of work-based learning at-risk youth, school youth, or young adults) and program tools to bridge the gap from education tailored to mentor and mentee needs. Time spent to employment, such as: together can be structured or unstructured. The • Mentorship programs: designed to mentor format can be one-on-one or in a group; topics individuals based on their backgrounds and can be tied to self-development, education, expectations (as youth, jobseekers, employees, career searching, professional development, entrepreneurs, and professionals) at any stage or other topics of mutual interest. An effective in their careers to help guide career decisions mentor understands that his or her role is to be both big and small. These programs can be dependable, engaged, authentic, and familiar formal or informal. with the needs of the mentee. A mentor makes • Apprenticeship programs: include an impact by building trust and modeling certified and industry-recognized structured positive behaviors. The outcome of the time on-the-job training and technical off-the-job investment is a more confident mentee who is training. A contract establishes the rights and capable of taking ownership of decisions to grow responsibilities of both parties. and be successful. There are many types of mentoring programs Factors for Success 3 that focus on the path to employment, including: Mentoring has proven effective in many regards. • At-risk youth programs: mentor at-risk In 2008, a World Bank meta-review of 55 youth on school, life skills, and career evaluations of mentoring programs in the United direction (for example, Boys and Girls Club States showed that mentoring had a significant, of America). measurable impact on the following, across age, • Career pathway mentoring programs: gender, and ethnic categories (Cunningham et mentor students nearing the end of school al., 2008): (or at dropout risk points) to help them to • Reducing high-risk behaviors navigate potential next steps such as work, • Improving academic and educational vocational school, or continued education (for outcomes example, Towards Employment and Year Up). • Enhancing career and employment outcomes • Entrepreneur mentoring programs: provide strategic and technical mentorship Since a core element of mentoring is a time of young entrepreneurs. They connect investment, mentoring programs should provide businesspeople, professionals, and advisors clarity on mentoring roles and the expectations with aspiring entrepreneurs (for example, with respect to the time invested. Some factors Endeavor, Mercy Corps MicroMentor, that influence program success are whether: Mentors International, and Alterna Mentores). • Mentors and mentees are matched based on • Young professional or company skills and development needs mentoring programs: provide mentorship • Clear goals and objectives are outlined of young professionals in a specific industry or company (for example, the World Bank). • Minimum time commitments are communicated Mentoring Roles • A formal process exists for monitoring the The role of the mentor is to listen, help mentor/mentee relationship formulate a career plan, provide networking, • Both parties are held accountable help navigate, help advocate, provide extra • perspectives, identify gaps in knowledge and Mentoring program links to business strategy ways to fill those gaps, encourage progress, and goals and celebrate successes. They provide a trusted Applying Mentorships in Guatemala alternative to colleagues, supervisors, friends, and family. Mentors sharpen their technical and Mentoring can be a powerful and flexible tool, interpersonal skills, gain new ones, and can form but effective implementation requires a focused friendships with their mentees. objective, programmatic commitment, clear structure, and personal follow-up. The concept Mentees dedicate time to their mentor, ask of mentorship is new to Guatemala; as such, it questions, and seek advice. For mentees, the will need to target both mentors and mentees to collaborative nature of mentoring develops gain traction. Because mentors are volunteers, knowledge, confidence, and interpersonal links. targeted outreach efforts are needed to seek out mentors for different youth populations. Given Mentoring provides an opportunity for learning the Guatemalan educational context, which and development, which can help advance includes a high dropout rate, lack of career mentees’ careers and keep them from feeling orientation, and dearth of job search knowledge stagnant in their roles. The role of a mentoring among youth, some suggestions for successful program is to provide the framework (time, program implementation are to: topics, forms, etc.), selection, pairing, tools, evaluation, and support (often financial) to • Develop mentoring programs targeted ensure a program is executed effectively. at reducing dropout rates by focusing the target population on youth in school 4 • Develop career orientation programs relevant to Guatemala. While it does not by engaging industries to articulate demand recommend developing formal government- for skills, training needed, and resources to funded apprenticeship programs, it does provide link potential students with opportunities some actions that can be taken to develop • Develop career pathway mentoring apprenticeships in Guatemala. programs to focus on navigating the desired Australia, Austria, Germany, Switzerland, career path, application process, and next and the United Kingdom have highly evolved steps to achieve desired goals formal apprenticeship systems that include The goal of these youth-focused programs is government, corporate, union, and educational to mentor youth to stay in school, help them institution funding, support, and co-governance. understand the market demands, and navigate While traditional apprenticeships are long options for work, university, or vocational and costly, it is possible to adapt the model for programs. shorter, more accessible programs that integrate formal classroom learning with an on-the-job apprenticeship component. Some countries such Apprenticeship Programs as the United Kingdom, United States, and Canada have adapted pre-apprenticeships as a precursor An apprenticeship can be defined as a job to apprenticeship programs so that groups from that includes on-the-job training and off-the- different populations are able to strengthen their job training to learn a skilled occupation that basic technical and interpersonal (soft skills) is certified and recognized by an industry. to meet the qualifications of an apprenticeship Apprenticeships are distinctive from other program. Pre-apprenticeships feature a classroom training methods in that: (or lab), worksite visits, internships, job shadowing, • The apprentice has a job with structured and other, similar activities that provide exposure training to the work environment. • The apprentice’s training plan combines Cost-benefit analyses of apprenticeship programs training in the workplace with a professional are scarce, but those that have been undertaken master demonstrate that a large percentage of training • A written contract of employment exists firms can recoup their investments by the end of the training period (Busso et al., 2017). The • The apprentice takes an assessment to receive employer pays the apprentice’s wages, which a recognized certification should be lower than or equivalent to those of a Apprenticeships are often aimed at out-of-school regular employee, and other resource costs, such young people around the age of 20 who may be as training for supervisors, training costs, and unemployed, have an interest in learning a skill, opportunity costs of experienced workers’ time. and may not have the economic ability to afford However, recruitment benefits are associated with an academic career (Fazio et al., 2016). Although an employer’s ability to recruit the best apprentices apprenticeships have demonstrated a positive from a pool and the increases in productivity that impact in some countries, they have infrequently the apprentice generates over the course of the been used in Latin America and the Caribbean. program (Fazio et al., 2016). Apprenticeships tend not to target vulnerable youth, or youth with the lowest skills base; they Factors for Success offer longer, more intense training—and are Given the high level of formality and inter- therefore costlier—and are co-financed by the institutional coordination among multiple private sector (Busso et al., 2017). stakeholders, key factors of success revolve around aligning programs with market demand, In 2016, the Inter-American Development aligning incentives for actors, sharing investments Bank produced a comprehensive assessment across actors, focusing on quality, and rigorously of apprenticeships in Latin America and the measuring the return on investment for all. A Caribbean (Fazio et al., 2016). This technical number of core elements should be followed to brief draws out specific recommendations achieve successful outcomes: • Alignment with country development strategies education and training in Mexico is CONALEP 5 • Adequate governance arrangements (Colegio Nacional de Educación Profesional Técnica). Since the early 1990s, Swiss-, German-, • High levels of employer engagement and Austrian-linked programs have been • Appropriate funding and incentive structures collaborating with auto parts and industrial • Robust curriculum design, delivery, and firms to conduct apprenticeship programs assessment methodologies that are relevant to in Mexico. occupation Applying Apprenticeships in Guatemala • Certification and opportunities for further progression Latin America is keen to boost apprenticeships to drive steady employment, but many • Suitable support in the form of apprenticeship challenges confront the traditional model. career services Employers are often not willing to finance basic • Strong quality assurance mechanisms for and soft skills remediation, small- and medium- delivery of the apprenticeship program that sized enterprises are unable to absorb the high must take into account all of the aforementioned costs of participation that larger employers can core elements and be highly aligned with absorb, and a lack of transparent information countries’ skills development systems (Busso et about worker skills and training quality al., 2017) discourages many employers from making the investment. Guatemala faces challenges In addition, to achieve a higher return on in developing apprenticeships due to the lack investment, programs that target youth who have of architectural elements in an apprenticeship already acquired advanced soft and basic skills are system. With political will and a committed often more effective (a challenge in Latin America private sector, there are practical steps that and the Caribbean). Guatemala can take to bolster an apprenticeship system. Examples of International Apprenticeship Systems Given the challenges, complexity, and scale, a formal, multiparty, long-term apprenticeship The German system, characterized by a very system may not be the most effective system stratified, state-paid education system and in an environment with scarce resources. heavily regulated and unionized labor markets, Guatemala may want to focus on less formal, is often touted as one of the global leaders in systemic models for bridging employment—such apprenticeships. Most apprenticeships last as internships and mentoring with an emphasis approximately three years and mix company- on career counseling (described next) or pre- based with in-school training or consist solely of apprenticeships as described previously. If school-based training with a work placement. Both momentum for paid-formal apprenticeships with types of programs provide a nationally recognized certification builds, then steps can be taken to qualification. About 60 percent of young people establish apprenticeships. participate in apprenticeships in Germany (Jacobs, 2017). Beyond Mentoring and Apprenticeships The U.S. system, characterized by company- led partnerships with educational institutions Practical options other than mentoring and and community colleges, has historically been apprenticeships exist for Guatemala, such as underused, with an annual average of active internships. An internship is an opportunity apprentices under 500,000 for the last 20 years. for experiential learning outside the classroom As of 2017, there were approximately 534,000 to prepare youth to work in a technical or registered apprenticeships (U.S. Department of professional environment, though with a shorter Labor, 2018). timeline (1-3 months) than an apprenticeship. Considering the formality of apprenticeships, The Mexican system has recently demonstrated internships can be an option for youth who greater momentum in promoting apprenticeships. need to work, earn money, and learn new skills The main organization responsible for vocational 6 rapidly. Furthermore, the private sector may potential in Bulgaria. The interview program not be ready to absorb a formal apprenticeship provided insight into employer demand and program but could quickly adapt a less formal highlighted opportunities for new investment internship program. Internships can be paid and employment creation. As a result, USAID or provide a stipend and can also be combined sought pilot programs to better prepare the with a certification program. Evidence of several labor force to meet the needs of a changing successful workforce development programs that economy and Bulgaria responded with training include internships are highlighted next from certification programs to meet the needs of Macedonia, Bulgaria, and El Salvador. employers in the growing tourism and apparel industries. Additionally, Bulgaria instituted Macedonia sought to correct its disconnect a national internship program for university between supply and demand of labor through students to receive practical work experience several initiatives. A national internship and through an online platform connecting job placement program was established as internship seekers with employers. This a platform for work-based and experiential initiative included helping universities to open learning for recent graduates and youth to career development centers, training staff using transform internships into full-time jobs. internationally recognized methodologies for The program, MyCareer, centers around a job training career counselors, drafting guidance placement portal that brings together jobseekers, for employers and universities on internship students, employers, and career counselors. program development, organizing internship Students use the portal to get a foot in the and career fairs, and promoting academic door and strengthen professional development credit for internships. To address youth not while employers consider it a cost-effective way attending university, the Ministry of Education to recruit and screen candidates. MyCareer partnered with LMP to build capacity for career provides training for students and jobseekers counseling at secondary and vocational schools to write resumes and cover letters, prepare for and launched a website to assist Bulgarian interviews, and develop communication and youth to make informed career decisions. A soft skills for the work environment. In addition key lesson learned from the LMP is that the to MyCareer, the national program supported failure of education and training institutions to industry-led education programs to build a adequately equip labor market participants with pipeline of workers with specific skills needed necessary skills is a critical structural constraint for businesses within a given sector, facilitated to economic growth. Sustained employment through partnerships between local businesses creation and productivity growth requires and technical and vocational schools. These continuous improvement of skills. programs cost little while providing a knowledge transfer that led to internship placements and El Salvador provides several program full-time jobs for well-performing students. Key examples that could be valuable for Guatemala. to these initiatives was a career development The program’s main principles were to ensure process with the Global Career Development that interventions were market-led and Facilitator certification that targeted the private activities were alliance-based to ensure local sector and educational institutions to provide buy-in and sustainability, promote access to counseling services. Lastly, the program information (on supply and demand in the sought to encourage stakeholder dialogue and market, efficacy of training programs, and coordination to provide an integrated, systematic opportunities), build sustainable platforms approach to workforce competitiveness. for communication and collaboration, and utilize strategic communications, particularly Several components of USAID’s Bulgaria Facebook. The program components were 1) Labor Market Project (LMP) provide cost- promote occupational skills, standards, and effective best practices that could be relevant to competency certifications by identifying supply the Guatemalan context. One activity sought to gaps in occupational skills and competencies identify employers’ needs through an interview and designing competency-based training program of over 150 companies in a range of and certification programs to address these sectors and industries that promised growth gaps, 2) expand consumer-based employment reporting and career counseling/placement comprehensive, covering a range of issues 7 services for vulnerable youth and persons that youth face. with disabilities, 3) improve the labor market 2. Map skills needed and existing information system (for example, English for programs for priority sectors. Work and IT certifications for professionals, The Foundation for the Development of teachers, and students), and 4) link technical Guatemala has undertaken an effort to map and vocational training with the needs of the talent needs (FUNDESA, 2017). This can be business community through alliance building augmented with existing data on firms (such with the private sector. Furthermore, the as number of firms, number of employees, program teamed up with a private sector firm to growth rates, and types of roles). It is develop an online national internship program essential that specific companies are aligned for university students, develop a certification with specific needs to effectively structure a program for career counselors, redesign the program. Internet portal for job matching, and create an online vocational tool for youth. Lastly, the 3. Engage the private sector as a program aimed to 5) build local capacity by resource for workforce development transferring best practices to stakeholders in the solutions. Working with the private sector workforce development system. The results were to validate strategies, priorities, needs, and impressive. For example: resources through the establishment of skills councils, employer consultations, and • 14,622 people found employment in new or roundtables is needed. Engagement can take improved jobs place at the company, sector, or platform • 21 alliances were created between public, level. Gaps and appropriate responses private, and non-profit stakeholders (such as career orientation, certifications, • 1,047 internships were completed mentoring, internships, or apprenticeships) can be identified and addressed. An active role by employers is vital to ensure that Potential Steps Forward for Guatemala training and certification programs are demand-driven to address the real skillsets Guatemala is in a position to develop programs that are needed in the labor market. to bridge the gap between school and work at 4. Use public-academic-private low cost. Regardless of the type of program tool, platforms to focus on private sector bridging the gap between private and public/ refinement and adoption of programs. nongovernmental sectors is needed. The following The private sector, both formal and informal, are some steps that Guatemala can take to employs the majority of Guatemala’s highlight and improve the education-to-work path workforce. Aligning stakeholder interests for stakeholders. and showing the feasibility and low cost 1. Align programs with existing country of collaborative efforts to revise curricula, development strategies. Currently, transfer knowledge to trainers, and provide government actors, associations, businesses, venues for work-based learning at local and civil society groups are working to grow and sector levels increases the likelihood targeted sectors. PRONACOM has focused that public-private partnerships can take its strategy on the “11-11-9” framework (11 place. Platforms like the National System of clusters, 11 priorities, 9 territories) that forms Labor Training (or SINAFOL) can focus on the basis for the National Competitiveness private sector adoption of programs and the Policy 2018-2032. Identification of thematic Directorate of Extracurricular Education working groups is necessary to avoid could work with a private sector task force duplication of efforts and build coordination to frame best use of resources, or co-design and consensus. Furthermore, the target programs that train workforce-ready population needs to be considered—if employees and micro-entrepreneurs. the focus is vulnerable youth, the best 5. Complement mentoring and solutions are those that are integral and apprenticeship programs with career counseling. Historically, public and private References sectors have worked independently, thus the process of establishing mentoring and Busso, M., J. Cristina, D. Hincapié, J. Messina, L. apprenticeship programs will take time Ripani. 2017. Learning Better: Public Policy for Skills to build bridges between these sectors. Development. Washington, DC: Inter-American Incorporating trained, or certified, career Development Bank. counselors is a necessary complement Cunningham, W., L. McGinnis, R. G. Verdú, C. Tesliuc, that carries low risk and low costs. Career D. Verner. 2008. Youth at Risk in Latin America and the counselors can provide jobseekers with Caribbean: Understanding the Causes, Realizing the Potential. Washington, DC: World Bank. information about the labor market and where they may best fit in within it. Career De Hoyos, R., H. Rogers, M. Székely. 2016. Out of School counseling can take place in-person and Out of Work: Risk and Opportunities for Latin or online. America’s Ninis. Washington, DC: World Bank. 6. Promote access to information and Fazio, M.V., R. Fernández-Coco, and L. Ripani. 2016. resources. Lack of information is an Apprenticeships for the XXI Century: A Model for Latin America and the Caribbean? Washington, DC: Inter- obstacle for a functional workforce program. American Development Bank. It is important to inform jobseekers and job suppliers about the efficacy of training Fundesa para el Desarrollo de Guatemala (FUNDESA). programs, job opportunities available, job 2017. “Estudio Brechas de Talento.” Available at: http://www.fundesa.org.gt/en/publications/ placement offices, and how to access these estudio-brechas-de-talento. resources. Considerations such as monitoring and data management systems, information Guatemala Ministry of Education. 2016. Plan Estrategico de Educacion 2016-2020. Available at: https://www.mineduc. portals, and social media can positively gob.gt/portal/contenido/menu_lateral/quienes_somos/ contribute to access to information. politicas_educativas/pdf/PLAN-EDUCACION.pdf.

Guatemala faces a challenge in that many youth Jacobs, Rose. 2017. “Germany’s Apprenticeship Scheme leave school without developing the minimal Success May Be Hard to Replicate.” Financial Times, April technical competencies that employers require 21, 2017. and those youth that remain in school do Manpower Group. 2015. “Solving the Talent Shortage: not have real world experience. Investments Build, Buy, Borrow, and Bridge.” Available at: ht t ps:// in workforce development systems that are go.manpowergroup.com/talent-shortage-2018. aligned with the needs of employers can help U.S. Department of Labor Employment and Training individuals achieve their potential and benefit Administration. 2018. Registered Apprenticeship National the labor market as a whole. Mentorships and Results. Washington, DC: U.S. Department of Labor. apprenticeships, as well as less formal options Wilson, Randall. 2015. A Resource Guide to Engaging such as internships, are potential tools to bridge Employers. Boston: Jobs for the Future. the path from education to employment in Guatemala.

CONTACT US Health Policy Plus (HP+) operates as Health & Education Policy Plus (HEP+) in Guatemala. HP+ is a five-year cooperative agreement funded by the U.S. Agency for International Development under Agreement No. AID-OAA-A-15-00051, beginning August 28, 2015. HP+ Health Policy Plus is implemented by Palladium, in collaboration with Avenir Health, Futures Group Global 1331 Pennsylvania Ave NW, Suite 600 Outreach, Plan International USA, Population Reference Bureau, RTI International, ThinkWell, and the White Ribbon Alliance for Safe Motherhood. Washington, DC 20004 This publication was produced for review by the U.S. Agency for International Development. www.healthpolicyplus.com It was prepared by HP+. The information provided in this document is not official U.S. Government information and does not necessarily reflect the views or positions of the U.S. [email protected] Agency for International Development or the U.S. Government.