The Forgotten Half: Two-Thirds: an Hispanic Perspective on Apprenticeship, European Style

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ED 361 431 UD 029 441

AUTHOR McKay, Emily Gantz TITLE The Forgotten Half: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style. Report of the National Council of La Raza Consultation on Apprenticeship. INSTITUTION National Council of La Raza, Washington, D.C. SPONS AGENCY Ford Foundation, New York, N.Y.; German Marshall Fund of the United States, Washington, D.C. PUB DATE 93 NOTE 75p.; Throughout the document the word "Half" in the title is crossed out, signifying its replacement by "Two-Thirds." PUB TYPE Viewpoints (Opinion/Position Papers, Essays, etc.) (120) Reports Descriptive'(141)

EDRS PRICE MF01/PC03 Plus Postage. DESCRIPTORS Access to Education; *Apprenticeships; *Consultation Programs; Cultural Differences; *Education Work Relationship; Foreign Countries; Hispanic American Culture; *Hispanic Americans; Minority Groups; Outcomes of Education; *Policy Formation; Program Implementation; Secondary Education; Trade and Industrial Education; Vocational Education; Work Experience Programs IDENTIFIERS Denmark; *Europe; Germany; Hispanic American Students; Program Adaptation; Sweden

ABSTRACT A Hispanic-based consultation on European-style apprenticeships was undertaken to add a Hispanic perspective to the current policy debate about apprenti,:eships as a school-to-work transition option r widing effective career preparation for non-college bound American youth. In March 1992, a delegation of 10 specialists in Hispanic education and employment and training visited Germany, Denmark, and Sweden, and also met in Germany with a group of minority leaders from Europe. The delegation noted that inclusiveness in the European programs is limited as immigrants and minorities do not fare well in the programs visited; that careful safeguards would be required to assure that Hispanics and other minorities are not tracked in discriminatory ways; that no matter how effective in Europe, its value for the United States depends on the extent to which key components can be "transported" to the different environment of the United States; that some European education practices should be emulated; and that current enthusiasm over these programs will discourage candid assessments of their weaknesses as well as their strengths. The delegation developed a set of 10 basic principles on which they recommend that any application in the United States be based. Appendixes show the consultation schedule and list 30 references. (JB) *********************************************************************** 7.0 Reproductions supplied by EDRS are the best that can be made from the original document. *********************************************************************** IL' lila!

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tfs THE NATIONAL COUNCIL OF LA RAZA (NCLR)

The National Council of La Raza (NCLR), the largest constituencv-based nationalHispanic organization, exists to improve life opportunities for the more than 22 millionAmericans of Hispanic descent. In addition to its Washington. D.C. headquarters. NCLR maintainsfield offices in Los Angeles, California; Phoenix. Arizona; McAllen, Texas; and Chicago,Illinois. NCLR has four missions: applied research, policy analysis, and advocacy on behalf of the entireHispanic community; capacity-building assistance to support and strengthen Hispaniccommunity-based organizations; public information activities designed to provide accurate informationand positive images of Hispanics; and special innovative, catalytic, and internat:onal projects.NICLR acts as an umbrella for 160 affiliates Hispanic community-based organizations which together serve 37 states, Puerto Rico, and the District ofColumbia, and reach more than two million Hispanics annually. THE FORGOTTENHp: TWO-THIRDS:

An Hispanic Perspective on Apprenticeship, European Style

Report of the National Council of La Raza Consultation on Apprenticeship The Forgotten fp: Two4hirds. An Hispanic Perspective on Apprenticeship, European Style

Report of the National Council of La Raza Consultation on Apprenticeship

Prepared by: Emily Gantz McKay Project Director and Senior Vice President for Institutional Development

Ratil Yzaguirre President

National Council of La Raza 810 First Street, N.E., Suite 300 Washington, DC 20002 Telephone: (202) 289-1380 Fax: (202) 289-8173

Acknowledgments Executive Summary

Introduction 1 Hispanic Education and Employment Status: A Critical National Concern 2

Why an Hispanic Conadtation on Apprenticeship? 8

The Consultation: Process and Participants 11

Distant Allies: Differences in Population and Culture 16

Understanding European Apprenticeship Systems 19

Philosophy and Values: Critical Underpinnings 19 Structural Characterist ics 20 Critical Apprenticeship Components 23

Lessons from the European Apprenticeship Systems 32

Outcomes 32 Inclusiveness 33 Tracking 36 Transportabi 1 ity 38

Resources and Options 42

Current Programs and Resources 42 Proposals and Future Policy 46

Conclusions 47

Principles for Assessing School-to-Work Proposals 52

Looking Ahead 55

Appendix A: References 57

Appendix B: Consultation Schedule 60

6 Acknowledgments

The Hispanic Consultation on Apprentice- knowledge to help us understand their coun- ship and this report were made possible by tries and their school-to-work transition sys- grants from the Ford Foundation and the Ger- tems; the delegation appreciates not only the man Marshall Fund of the United States. The great courtesy and kindness, but also the enthu- National Council of La Raza (NCLR) deeply siasm and interest we encountered everywhere. appreciates their support; however, the views We are particularly grateful to Helga Nagel and expressed in this report are solely those of other membersofthestaffofthe NCLR and do not necessarily reflect the views Volkshochschule in Frankfurt; the specialists of project funders. NCLR is particularly grate- on minority issues who met with us in the ful to the two individuals who served as Pro- Office for Multicultural Affairs in Frankfurt; gram Officers, Anne Heald, then at the German Mr. von Bardeleben of the Bundesinstitut für Marshall Fund, who worked closely with NCLR 13eruflIbildung, who provided so much statisti- in the development of the consultation, and cal and structural information at the end of our John Lanigan, then at the Ford Foundation. stay in Germany;Mr. Jens Pehrson of the Many people helped to make the consulta- Department of Vocational Training and Educa- tion a success. Most important were the mem- tion and Mr. Johannes Bang of the Departmnt bers of the delegation, whose enthusiasm, hard of Primary and Lower Secondary Education in work, intelligence, and commitment made the Denmark; Mr. Olof Gardstedt of the Gothen- trip a continuing pleasure as well as a learning burg Youth Center and the wonderful represen- experience. NCLR deeply appreciates the as- tatives from other organizations who provided sistance of many individuals and organizations information on minorities in Gothenburg, in- in Europe, especially the former German cluding union representative Rodney Lowe; Marshall Fund minority fellows who shared and all the instructors and apprentices who their experiences.Special thanks go to tal'ed with us in the three countries. Our many Rosemarie Wolf-Almanasreh de Carvalho conocts r.ot only provided information, but Esteves, Director of the Office for Multicultural also rclffirmed our belief in the common val- Affairs, Frankfurt, and her staff, and Dr. Faruk ues and :nterests of those who seek to encour- Sen, Director of the Center for Turkish Studies, age human development and to protect human and his staff, who helped arrange meetings rights, wherever they live and work. with individuals, institutions, and employers At NCLR, thanks are due to Diane Cabrales, able to provide minority perspectives. NCLR who assisted with every aspect of the consulta- appreciates the work of Karen Sieber of CDS tion and with research for and "quality control" International, as well as interpreter Barbara ofthis report; Yolanda Bernal, who helped with Kirchner and Danish representative Frank logistics and coordination for the consultation; Anderson; CMS made all meeting and logistical and NCLR's desktop publishing expert, Rose- arrangements for the consultation, and accom- mary Aguilar Francis, who prepared the report panied the delegation. for publication. Dozens of individuals in Germans', Den- mark, and Sweden contributed their time and Executive Summary

The National Council of La Raza (NCLR), the largest constituency-based national Hispanic organization, carried out an Hispanic Consultation on Apprenticeship in 1992, in order to add an informed Hispanic perspective to the current pohcy debate about the appropriateness of apprenticeships and the applicability of a European apprenticeship model as a school-to- work transition option providing effective career preparation for non-college-bound American youth. In March 1992, a delegation of ten specialists in Hispanic education and employment and training, selected by NCLR, visited Germany, Denmark, and Sweden, and also met in Germany with a group of minority leaders from Europe who had been German Marshall Fund Fellows. Funding was provided by the German Marshall Fund of the United States and the Ford Foundation. This report summarizes the consultation experience and the lessons it suggests. The report typically uses the observations and often the words of the participants to describe and illustrate insights and observations.It provides analyses of and reflections on European apprenticeship systems from the perspective of practitioners knowledgeable about Hispanic education, training, and employment issues. The report draws heavily upon discussions with and materials provided by a wide range of people during the consultation, including public officials, program operators, employers, union representatives, academic and vocational instructors, mainstream and minority apprentices, and minority leaders in Germany, Denmark, and Sweden. NCLR defines youth apprenticeship as a structured system through which youth in secondary school may choose to combine a solid academic curriculum with vocational instruction including work-site-based training, resulting in competence and certification in a skilled occupation os well as a high school diploma or more advanced educational certificate. Apprenticeships are a critical issue for Hispanics because more than two-thirds of Latinos are among the Forgotten Half. The Forgotten Half: Non-College Youth in Americaa report by the W.T. Grant Foundation Commission on Youth and America's Future concluded that the half of 16-24 year-olds in the United States who are unlikely to attend college receive far less "attention, respect, and resources" than college-bound youth. It emphasized the need to improve education and career preparation and facilitate the school-to-work transition for non-college- bound youth. Consider the Hispanic population, and the Forgotten Half becomes the Forgotten Two-Thirds or more. Fully 42% of Latino young people 25-34 are not high school graduates and therefore are very unlikely to go to college; moreover, only a little over half of Latino high school graduates enter college immediately after high school, and only about 10% of Latinos 25 and over are college graduates. The strong Hispanic work ethic has not led to widespread career success.Hispanics, especially Hispanic men, have very high labor force participation rates they are more likely than White or Black men to be either working or looking for work. However. Hispanics, especially Hispanic youth, continue to suffer from high unemployment, and employed Hispanics are overrepresented in low-paid jobs and therefore among the working poor. Hispanic median family income in 1991 was 63% of White median family income, down from 70% in 1981. One in four Hispanic families (27%) lived in poverty, compared to one in 11 White families (9%). Hispanics do not benefit equitably from existing apprenticeship and job training programs. As of September 1992, 22.2% of the 263,000 non-military apprentices in the U.S. were minorities; as of March 31, 1991, just 4.3% of U.S. apprentices were Hispanic. Similarly, the major federally supported job training program, the Job Training Partnership Act (JTPA), serves less than 5% of eligible persons, provides mostly short-term training, and often "creams" tending to enroll and serve those with relatively high educational levels and job experience, rather than those with the greatest need, such as high school dropouts and individuals with other employment barriers. While the Department of Labor estimated that Hispanics constituted 15% of the JTPA-eligible population in 1991, they accounted for 12% of program year 1991 terminees indicating 20% underrepresentation and Hispanic terminees were less likely than non-Hispanics to have obtained employment. Demographic trends make increasing Hispanic educational attainment and employment preparation a national not just an Hispanic -- imperative. Soon after the turn of the century, Hispanics will become the largest U.S. minority group. Moreover, because Hispanics are the youngest major population group, many more will be entering than leaving the workforce. Hispanics are projected to account for more than one-quarter (27%) of net change in the labor force (entrants minus leavers) from 1988 through 2000 compared to 47% for Whites,16% for Blacks, and 10% for Asian and other workers. Unless action is taken to close the education and training gap between Hispanics and other Americans, the mismatch between employer needs and worker skills will have significant negative impact on American productivity and international competitiveness and on U.S. society as a whole. Hispanics have not been active "players" in the apprenticeship debate.Hispanics are especially likely to benefit from appropriate new policies and programs directed at non-col l ege- bound youth, while ineffective attempts at addressing the school-to-work transition could disproportionately harm Hispanics increased "tracking" cou Id further iliduce college access; inadequate basic education, "creaming," or discrimination could close off desirable youth apprenticeship opportunities; emphasis on in-school youth could eliminate essential "second c'lance" programs for young Hispanic dropouts, The apprenticeship debate, therefore, is of critical interest and importance to the Hispanic community. Yet this debate has occurred with limited minority and minimal Hispanic input, including the discussio :.of what European systems have to offer the United States. There are some very significant differences between the populations and societies of Europe and the United States. The countries visited by the NCLR delegationGermany, Denmark, and Sweden are far smaller than the U.S. in both population and physical size. Their populations are far less mobile than Americans. Perhups most important, they have not historically seen themselves as multicultural societies. While more than one-quarter of Americans are Hispanic,

9 African American, Asian/Pacific Islander, or Native American, and many more fit "ethnic" categories, most European countries have traditionally been far more homogeneous. Many large European cities have become multicultural, and the countries are increasingly diverse in population, though not necessarily in self-perception. For example, Copenhagen is 20% minority, about 16% of the residents of Gothenburg, Sweden, are of non-Swed ish ancestry, and Frankfurt, Germany is officially 25% minority.However, the term "minority" is not commonly used in these countries; many people of foreign ancestry arestill called "guestworkers," even if they are third-generation immigrants.Moreover, in most countries they are not automatically citizens by birth as they would be in the United States, and naturalization is difficult. Minority civil rights protections are far less extensive than in the United States, and there is no effective system to prevent discrimination or enforce anti-discrimination in education and employment. In Germany, the law requires that job preference be given first to German citizens, then to Economic Community citizens, and that others be considered last including the former "guestworkers." In Denmark, officials reported that anti-discrimination laws exist, but there is no enforcement mechanism. The NCLR delegation looked carefully at how minorities were faring within European apprenticeship programs, and identified three major concerns related to how European apprenticeship systems might serve the United States in all its diversity: inclusiveness, tracking, and transportability. Inclusiveness is lhnited; immigrants and minorities do not fare well in the apprenticeship programs the delegation visited, and women rarely enter apprenticeships in traditionally male occupations. In addition to the lack of civil rights protections, there is a clear correlation between economic conditions and apprenticeship opportunities for minorities. Most European countries have low birthrates, so they depend increasingly upon immigrants and minorities to meet labor market needs. However, current economic conditions frequently make these groups unwelcome, and as the European Economic Community (EEC) countries become increasingly integrated and their employment systems "harmonized," employment of non-EEC citizens may become extremely difficult. There is no provision in apprenticeship programs for serving new immigrants not fluent in the country's primary language.Women also face inequities.Even in the Scandinavian countries, which have very high rates of female labor force participation, women are highly concentrated in certain occupations, with "family and societal pressure" seen as major obstacles to female participation in higher-paying apprenticeships for trad itionally male occupations. Tracking remains a significant concern. NCLR looked in detail at how the various systems and programs serve non-typical students, from language and ethnic minorities to women, the hand icapped, and older trainees. The grou p believes that careful safeguards are requ ired to assure that Hispanics and other minorities are not tracked in any of three ways: Tracked into apprenticeships when they should be pursuing the coursework to enter college; + Given less-than-equal opportunity within an apprenticeship system, such that they are seriously underrepresented in apprenticeships providing preparation for occupations offering the best pay and greatest mobility, due to inappropriate or inadequate counseling, poor preparation in elementary and secondary school, biased testing, or employer unwill- ingness to "hire" minority apprentices; or + Denied access to an apprenticeship system which does not provide alternative entry points for school dropouts, those with special needs (such as the limited-English-proficient), or simply youth who are not prepared to make career decisions at the expected age and thereby left without the opportunity for the training required for skilled employment. Transportability is a key question.No matter how effective and successful a European apprenticeship system is in Europe, its value for the United States depends the extent to which it or key components of it can be "transported" to the very different environment of the U.S. The delegation considers the following differences between the European and American education and training systems especially important: Underlying the European system of preparing young people for the world of work are certain shared societal values,such as a strongly held belief in human resource development, prestige and earning capacity for the skilled occupations, a commitment to a skilled workforce which transcends the current economic situation, and a belief that everyonecan and will learn. The U.S. lacks this high level of respect for the occupations for which apprenticeship programs provide training, and there is a widely held though perhaps not majority-held belief that sorre low-income and minority youth havelimited capacity to learn and to perform. + The European education and training systems reflect a strategic national industrial policy, and a clear legislative base and taxing structure which support holistic education and training systems built on a solid social support system. The structure reflects genuine, ongoing, institutionalized collaboration among the kcy stakeholders in employment and traininggovernment, business and industry, unions, families, and the not-for-profit sector from the national to the local level. Theoretical and practical learning are fully integrated: education and training entities work not as separate systems but as partners. A relatively "seamless" system with low dropout rates provides multiple chances for attaining success and several clearly defined but different paths for achieving vocational skills, based on national quality standards which define and describe skilled occupations and the compe- tenciesassociated with them. Education and training institutions have access to the newest technology. This provided a great contrast to U.S. education and training efforts, which are not a single systeilt, but rather a collection of often disjointed, short-term educational experiences or unrelated programs.

1 i The education and training system in the countries visited reflects a recognition of the need for lifelong learning, with opportunities for increasing, broadening, and upgrading skills at various stages in the individual's working life.There is a growing emphasis on developing skills relevant to a family of occupations rather than one single job, as a means of developing a workforce adaptable to economic and technological changes. Preparation is long-term; obtaining the equivalent of a skilled worker's or "journeyman's" certificate typically takes three to four years of combined education and training. In the U.S., a high proportion of workers and youth are not predisposed to returning to "school" periodically to upgrade their skills. + Apprenticeships in Europe are financially affordable and therefore accessible for nearly all youth. The countries provide meaningful training wages, so even youth from poor families can remain in long-term training instead of only those who can afford to be without wages for several years. In the U.S., there is no similar system of training wages, so low-income youth often cannot affurd long-term training, Strong value is placed on multilingual capacity for global competitiveness. In contrast, many Americans distrust bilingualism, and only a small minority of U.S. youth learn fluency in a second language. + The Europeans have far less experience with racial and ethnic minorities than the U.S., and minorities there do not enjoy equal opportunities, particularly in employment. There is a lack of equal employment opportunity laws, and existing ones generally lack enforcement. Similarly, there are few protections to assure equal access for women, especially in non- traditional occupations. Successful adoption and adaptation of components of the European system require first of all that the U.S. commit itself to the system's underlying values and concepts particularly the partnership between government, business and industry, unions, families, and the not-for-profit sector as stakeholders and the unswerving commitment to human resource development as reflected in long-term skill development. Not only the basic educational system, but also the social welfare system and role of government and the private sector are fundamentally different in those countriesas are some very basic values. European systemscannot be expected to work in the U.S. unless this country also adopts some European values. Any education and training system adopted in the United States must reflect and build on this country's unique strengths, history, and culture. The U.S. is a multi-racial, multi-ethnic society with a strong emphasis on diversity, individualism, decentralization, and flexibility. There is a need to build on existing U.S. structures and capacities, from community colleges to commun ity- based organizations. A U.S. apprenticeship system is most likely to emerge out of a combination of new initiatives and existing vocational education and employment programs and resources.

V Some specific aspects of the European education and apprenticeship system should not be emulated, such as late school entry, with children often not starting school before the age of six or seven; limited compulsory schooling which requires as little as nine years of schooling; and early forced choice between academic and vocational preparation, often by age ten. There is areal danger that the current enthusiasm over European apprenticeship systems will discourage candid assessments of their weaknesses as well as their strengths. The European models are not without their problems or detractors, but many recent reports have given litt:e attention to possible negative factors.The minority perspective as provided to the NCLR delegation is one critical component of this assessment process. Other analyses of the European systems are needed, especially analyses conducted by neutral entities rather than major proponents of U.S. adoption of a European-style system. NCLR believes that an American apprenticeship system can be successful if and only if it reflects and builds on certain basic principles: 1. School-Workplace Integration: Youth apprenticeship must be a part of a broader reform of the education system. It must establish a combined academic and workplace system with a strong focus on education for employment, and broad occupational coverage, and should be part of an integrated K-14 (not merely K-12) education and training system, building on existing community colleges, with worksite learning as part of the curriculum. 2. Seamless System: The apprenticeship system must be both seamless and flexible, designed to meet the needs of all students. The system must be able to successfully bring in, motivate, and train culturally, economically, and educationally diverse student populations. It must retain for all students the option of university attendance. 3, Partnership: Youth apprenticeship requires a genuine and ongoing partnership among sectors and groups, not domination by one sector; it must include business, unions, education, nonprofit organizations, students, and parents and families. 4. Independent Sector: The nonprofit sector and especially community-based organizations must be full partners in an American apprenticeship system. 5. Literacy and Numeracy: Youth apprenticeship requires that every student receive a strong basic education. Students seeking to enter apprenticeships must not be penalized by poor academic preparation due to underfinanced, ineffective schools. 6. Vocational Choice:Students and their families can make appropriate apprenticeship choices only if they receive effective career information, counseling, and exploration from an early age. This is important for all students, but critical for those whose parents have limited education or had limited career alternatives themselves because of poverty or discrimination.

vi 7. Tracking and Discrimination: Youth apprenticeship represents a positive alternative for Hispanic and other minority students only if it includes strong, pro-active protections against "tracking," discrimination, and exploitation of apprentices as cheap labor. Any system adopted in the United States must address the needsof America's diverse popu lation. 8. Standards and Assessment: A national apprenticeship system requires both national skills standards and competency-based assessment of skill attainment during and at the end of the apprenticeship. Moreover, assessments must emphasize actual performance, and avoid the biases and inequities common in standardized paper-and-pencil tests. 9. Financing: Funding must be significant, expenses must be shared, and costs must be determined recognizing that the "pay now save later" principle applies. Government, industry, and families should share the costs of human capital investment. Resources must be sufficient to provide a living wage during apprenticeships; a training wage is not necessarily a subminimum wage. 10.Values: To build on the best of the European system, the United States must adopt not only its approaches, but also its most critical underlying values and philosophy. This includes an overriding commitment to human resource development, a genuine belief that all students can learn, and widespread public respect for skilled occupations not requiring university graduation. The members of the NCLR delegation believe that it is long past time for a major restructuring of the American system of education and training restructuring that reflects the above principles, assures multiple avenues from school to productive, skilled work for every U.S. resident, and allows youth to pursue the education and training alternatives most appropriate for them. Given the very long distance to be traveled in reaching such a system, NCLR believes that an incremental approach is essential. Values and beliefs must be re-examined, and alternative models and approaches developed, tested, refined, and institutionalized. NCLR supports youth apprenticeship demonstrations, but believes they need to be much closer to real life if they are to provide any meaningful test of a model suitable for widescale implementation. Hispanics and other minorities are already one-quarter of the population, and will soon be well over ono-fourth of the workforce. A youth apprenticeship system cannot succeed unless it effectively reaches and serves these young people. Appropriate testing of various apprenticeship approaches which ful ly reflect the diversity of U.S. society can assure that every young person in the United States regardless of race, ethnicity, gender, or special needs has the genuine opportunity to become a productive, skilled member of society.

vii Introduction

The National Council of La Raza (NCLR), resentatives, academic and vocational instruc- the largest constituency-based national His- tors, mainstream and minority apprentices, panic organization, received funding from and minority leaders in Germany, Denmark, the German Marshall Fund of the United and Sweden. Each participant prepared indi- States and the Ford Foundation to carry out vidual summaries of specific assigned aspects an Hispanic Consultation on Apprenticeship. of the European system throughout the trip The consultation took place during March and a final report at the end, as well as helping 1992; the delegation visited Germany, Den- to develop a joint set of observations and mark, and Sweden, and also met in Germany conclusions. with a group of minority leaders from Europe who had been German Marshall Fund Fel- lows. The consultation was designed to add an Purposes of the Hispanic informed Hispanic perspective to the current Consultation on Apprenticeship policy debate about the appropriateness of apprenticeships and the applicability of a To gather practical information on Eu- European apprenticeship model as a school- ropean apprenticeship programs from to-work transition option providing effective minority and mainstream perspectives, career preparation for non-college-bound including how they serve European mi- American youth. norities and women, in order to increase This report summarizes the consultation the ability of Hispanic practitioners and experience and the lessons it suggests. The advocates especially those from com- report, prepared by the participant who served munity-based organizations to par- as Project Director, typically uses the observa- ticipate knowledgeably in the current tions and often the words of the participants to American debate about the appropriate- describe and illustrate insights and observa- ness of apprenticeships as a positive tions.It is not a research report.It makes no career preparation path for American attempt to provide a detailed. "textbook" de- youth. scription of European apprenticeship systems; To document, report on, and dissemi- there are many other sources for that informa- nate information accurately presenting tion.Instead, it provides observations and an Hispanic perspective on the Euro- reflections on that system from the perspective pean apprenticeship models, to contrib- of practitioners knowledgeable about Hispanic ute to the public discussion and debate education, training, and employment issues. about apprenticeships and their poten- It draws heavily upon the discussions with and tial for improving career opportunities materials provided by a wide range of people for Hispanics. during the consultation, including public officials, program operators, employers, union rep-

NCLR The Forgotten 1-114: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 1 Hispanic Education and Employment Status: A Critical National Concern

More than two-thirds of Latinos are from Workforce 2000 and America's Choice: among the Forgotten Half. High Skills or Low Wages! to SCANS and America 2000 The Forgotten Half empha- The Forgotten Half: Non-College Youth in sizes the need to improve education and ca- America a report by the W.I. Grant Foun- reer preparation, and facilitate the school-to- dation Commission on Youth and America's work transition for non-college-bound youth. Future focuses on the half of 16-24 year- Youth apprenticeships have been recom- olds in the United States who are unlikely to mended as one important means of accom- attend college, a diversegroup of young people plishing this, and many states are already who, it concludes, receive far less "attention, planning or implementing apprenticeship respect, and resources" than college-bound demonstrations building upon the European youth. The Commission study argues that (especially the German) models. these youth need, deserve, arid require far more attention and support in the form of Instead of looking at the entire population policies, programs, status, and funding, espe- of young Americans, consider the Hispanic cially in their schooling and career prepara- population, and the Forgotten Half becomes tion.Like other studies and initiatives the Forgotten Two-Thirdsor more. This is

THE EDUCATION GAP HIGH SCHOOL COMPLETION RATE 1970-1991

Porcen1 100

8 0

6 0

4 0

2 0

1970 1975 1980 1985 1988 1991 White 64.6 64.6 68.8 75.5 77.7 79.9 Black * 314 42.5 51.2 59.8 63.3 66.7 Hispan I c 0 32.1 37.9 44 47.9 61 51.3

Persons 25 & older; Census and CPS data

2 NUR The Forgotten IC: Two-Thirds: An I-Iispanic Perspective on Apprenticeship, European Style

16 true because 42% of Latino* young people 25- more than two-thirds of Hispanics area part of 34 are not high school graduates and therefore that Forgotten Half. are very unlikely to go to college. While the other 58% are high school graduates as are The strong Hispanic work ethic has not 51% of all Hispanics 25 and older only a led to widespread career success. little over half of Latino high school graduates Hispanics, especially Hispanic men, have enter c-,llege immediately after high school, very high labor force participation rates and only 10% of Latinos 25 and over are they are more likely than White or Black men college graduates. Moreover, the education to be either working or looking for work. gap between Hispanics and other Americans, They tend to enter the workforce earlier and Black as well as White, is widening. leave it later than non-Hispanics. Labor force To put it another way: Hispanics are more participation among Hispanic women is still likely than other Americans to drop out of below that of other U.S. women, but is also school before high school graduation, and less increasing. likely than other Americans to go to co:iege;

THE EDUCATION GAP COLLEGE COMPLETION RATES 1970-1991

Percent 2 5

2 0

1 5

1 0

0 1970 1980 1988 1991

White 11.3 17.1 20.9 22.2 Black -6- 4.4 8.4 11.3 11.5 Hispanic 4.5 7.6 10 9.7

Persons 25 & older; Census and CPS data

* The terms Hispanic and Latino are used interchangeably to refer to persons who live in the United States and are of Mexican, Puerto Rican, Central or South American, Cuban, or other Hispanic descent.

NCLRTheForgotten Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 3 LABOR FORCE PARTICIPATION BY RACE/ETHNICITY AND SEX, 1991

Percent Hispanics continue to suffer from high 100 unemployment. The overall Hispanic unem- 78.2 80 74.3 76.4 ployment rate in 1992 was 11.4%, 11.5% for 69.6 Hispanic men and 11.3% for Hispanic women; 60 unemployment among Hispanic youth 16-19

40 was 27.5%. While considerably below the Black youth unemployment rate of 39.8%, it 20 was also well above the White rate of 17.1%. When employed, Hispanics are overrep- btal U.S. Hispanic Slack Population Group resented in low-p aid jobs and therefore among the working poor. Hispanic men and women MNMalts EZZI Female are far more likely than Whites to hold low- Hann 1901 cis skill, low-paid jobs such as operator/fabrica- tor/laborer and service positions, and far less likely to work in managerial and professional occupations, as the graphs on the following page show. In 1991, the median earnings of employed Hispanics were below those of both Whites and Blacks; this was true for both men and MEDIAN EARNINGS FOR MEN AND WOMEN women, for all employed persons, and for EMPLOYED FULL-TIME, YEAR-ROUND those working full-time, year-round (at least BY RACE/ETHNICITY AND SEX, 1991 50 weeks). Dollars $35,000 As a result, Hispanic median family in- $30,000 come in 1991 was 63% of White median family income, down from 70% in 1981. One $25,000 in four Hispanic families (27%) lived in pov- $20,000 erty, compared to one in 11 White families 615,000 (9%). $10,000

S5,000 Hispanics do not benefit equitably from $0,000 existing apprenticeship and job training Total U.S. Hispanic Slack WM Se programs. Male IIII $29,421 $19,711 $22,075 830.266 Fotnal. ESS $20,653 $16,244 518,720 520,794 There areabout 43,000 apprenticeship pro- Money Income of Households. FamIlles and grams in the United States. The current ap- Persons In the U.S: prenticeship system was established through the National Apprenticeship Act of 1937 (Fitzgerald Act).In September 1992, there

4 NICI.R TheF(n-gotten Xf: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style OCCUPATIONS OF MALES, 1991 HISPANICS AND WHITES

Tech/Sales Serv 15% 17% gr/Prol Farm/For/ 11% Fish '.. 9% II" Service 0% Farm/For/ Prod/Craft/ Fish Rep Oper/Fab/ 5% 19% *IILab Prod/Craf 1/ 20% Rep 20% Hispanics Whites

Marc% 1991 CPI

OCCUPATIONS OF FEMALES, 1991 HISPANICS AND WHITES

Mgr/Prof 16% Mgr/Prof Prod/Craft/Rep 28% 3% Tech/Sake 40% Tech/Sa1es Prod/Cral 1/Rep 45% Service 2% 20% Service 17% Farm/For/Fish Oper/Fab/Lab Farm/For/F ish Oper/Fab/Lab 1% 14% I% 7% Hispanics Whites

Larch 1991 CM

------..------NCLR The Forgotten HX: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 5

10 were about 330,000 registered apprentices in lat ion but nearly three times as many appren- the U.S., or 263,000 excluding uniformed tices 12.7% were African American. military apprentices.Whi le many of the Hispanics were underrepresented in appren- smaller programs are run by employers, the ticeships for nearly every occupation, but majority of slots are in programs run jointly by especially in the higher-skilled, higher-paid unions and employers. More than half the trades.For example, Hispanics were just registered apprentices are in the building, 3.8% of the electrician and 3.9% of the oper- construction, and metalworking trades. ating engineer apprentices, but 6.5% of the Hispanics and women are severely construction worker, 6.7% of the cement ma- underrepresented in apprenticeship pro- son, and 7.6% of the floor layer apprentices. grams. In September 1992, only about 7.4% Even in occupations in which minorities were of registered apprentices were women. The a majority of apprentices such as pumper U.S. Department of Labor's Bureau of Ap- gager, radio station operator, and telegraphic- prenticeship and Training reports that as of typewriter operator Hispanics constituted September 1992, 22.2% of non-military ap- less than 5% of apprentices. prentices were minorities. As of March 31, The current U.S. apprenticeship system 1991, based on racial/ethnic breakdowns avail- was developed to train adults, not youth. able fOr 70% of apprentices, just 4.3% of U.S. Fewer than 2% of U.S. high school graduates apprentices were Hispanic.The African enter apprenticeships, and they rarely do so American community has been somewhat immediately after graduation. U.S. appren- more successful than the Hispanic commu- tices are typically in their mid- to late-20s; the nity in gaining access to apprenticeship pro- average age is reportedly 29, the minimum grams; the African American population is age typically 18, and few apprentices are about one-third larger than the Hispanic pope- under 21. Prior to the initiation of demonstration European-style youth apprenticeships, only about 1,500 high school students were involved in U.S.-style apprenticeships na- 66 We need more ethnic diversity tionwide. among the higher-skilled building The major federally supported job train- trades apprenticeships, such as ing program, the Job Training Partnership the electricians, operating engineers, Act ()TPA), has not effectively served youth and plumbers. In my experience, dropouts or others facing serious obstacles to Hispanics are mainly concentrated in employment. Prior to the most recent amend- the mud trades cement, roofing, ments, JTPA legislation required that 40% of tile setters, bricklayers. " JTPA resources go to youth, with an emphasis on out-of-school youth.JTPAhas long been Roger CAzares criticized for its small scale it serves less than 5% of eligible persons and for its

6 NCLR The Forgotten litt. Two-Thirds: AnHispanic Perspective on Apprenticeship, European Style

2 tJ short-term, usually limited training. More- minority group. Moreover, because Hispan- over, studies show that JTPA programs very ics are the y(nest major population group, often "cream" they tend to enroll and serve many more will be entering than leaving the those with relatively high educational levels workforce. Instead of the current three U.S. and job experience, since they are easier to workers for every person on Social Security, train and place, rather than those with the there will be only two workers for every re- greatest need, such as high school dropouts tiree by the year 2000; more than one in four and individuals with other employment bar- workers will be minority, and at least one in riers. JTPA's own figures indicate that 43% ten will be Hispanic. Hispanics are projected of JTPA-eligible persons in 1991 were school to account for more than one-quarter (27%) of dropouts, yet for program year 1991, only net change in the labor force (entrants minus 28% of JTPA terminees were dropouts. leavers) from 1988 through 2000 compared Hispanics have been consistently to 47% for Whites, 16% for Blacks, and 10% underrepresented in ITPA. While the De- for Asian and other workers. Some cities and partment of Labor estimated that Hispanics states California among them will be constituted 15% of the jTPA-el igible popula- "majority minority," with Hispanics as the tion in 1991, they accounted for 12% of pro- largest single group, The Census Bureau re- gram year 1991 terminees indicating 20% cently estimated that by 2050, minorities will underrepresen-tation. Hispanic participation comprise 47% of the U.S. population with rates have changed only slightly fluctuat- Hispanics accounting for 45%, Blacks 31%, ing from 10-12% of terminees since program Asians 21%, and Native Americans 2% of the year 1984. JTPA data indicate that in program minority population. year 1991, Hispanic terminees were less likely Unfortunately, Hispanic popu lation growth than non-Hispanics to have obtained employ- and high Hispanic labor force participation ment. do not necessarily mean full and equitable Demogaphic trends make increasingHis- participation in the job market. Unless action panic educational attainment and employ- is taken to close the dducation and training ment preparation a national not just an gap between Hispanics and other Americans, Hispanicimperative. the mismatch between eoployer needs and worker skills will have significant negative The Hispanic population grew by 53% impact on American productivity and inter- between 1980 and 1990; soon after the turn of national competitiveness and on U.S. soci- the century, Hispanics will be the largest U.S. ety as a whole.

NCLR The Forgotten LK Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 7 Why an Hispanic Consultation on Apprenticeship?

ther reduce college access; inadequate basic " Hispanics have more to gain and more to education, "creaming," or discrimination lose from education and training reform than could close off desirable youth apprentice- most other Americans. The outcome of the ship opportunities; emphasis on in-school current youth apprenticeship debate could help youth could eliminate essential "second determine the education and employment chance" programs for young Hispanic drop- opportunities of our children and our children's outs. The apprenticeship debate, therefore, is children, for decades to come. " of critical interest and importance to the His- panic community. Raül Yzaguirre Although Hispanics have a great deal to gain or to lose from an apprenticeship system, Hispanics have What do we mean by "youth not been active "players" in the apprenticeship"? apprenticeship debate. NCLR defines "youth apprenticeship" as a Many recent studies have made it clear structured system through which youth in that some European countries do a far better secondary school may choose to combine a job than the U.S. of preparing young people soil(' academic curriculuth with vocational for the world of work, especially those young instruction including work-site-based train- people who will not attend college. Numer- ing, resulting in competence and certification ous public, private, and inter-sector commis- in a skilled occupation as well as a high sions and advisory groups are studying Euro- school d i p loma or more advanced educational pean apprenticeship ,systems, holding con- certificate. sultations, publishing reports, and recom- Improved career preparation for non- college-bound youth could have great benefits for Latinos. " A key part of improving the quality of the labor force is the Because H ispanics are less likely than other development of a formal Americans to enter or complete four years of system for helping youth make college, they are especially likely to benefit the transition from school to from appropriate new policies and programs work. The United States is the d irected at this population.A successful only major industrialized nation apprenticeship system would have great benefits for Hispanics. On the other hand, inef- that lacks such a system." fective attempts at addressing the school-to- Dr. Fred Romero work transition could disproportionately harm Hispanics increased "tracking" could fur-

8 NCLR The Forgotten igt Two-Thirds: An Hispanic Perspective on Appel: ticeship, European Style

22 mending policy action. The European (espe- higher status and apprenticeship should not cially the German) approach to addressing the be seen as negative tracking, there is little school-to-work transition has become an at- substantive discussion of how this is to be tractive model for many U.S. policy makers avoided for minority youth.Most of the and researchers; European approaches are commissions have included only a small num- already being tested in many states, and un- ber of minorities and sometimes a single His- der consideration at the national level. Both panic and often that Hispanic has been an the Department of Labor and Department of academician with limited community ties. Education have provided funding for the de- Given the lack of an American-style volun- velopment of national skill standards. tary sector in most European countries, it is Yet this debate has occurred with limited not surprising that reports about the Euro- minority and minimal Hispanic inputand pean model typically make no mention of in most cases, the discussion largely ignores community-based organizations.However, the role of minority community-based organi- commu nity groups are almost entirely ignored zations in both advocating for and providing services to their communities. The report of 64 In my state, we've had several groups visit a December 1990 meeting on "Youth Appren- Europe, and not one Hispanic was part of that ticeship, American Style," which NCLR co- sponsored with many other organizations, group. It's always been higher education people quotes a senior official of the Department of and government people at the state and federal Education as saying that an American-style level, but not people at the local level, and no apprenticeship system must "recognize and Hispanics. 99 accommodate the diversity inherent in the NCLR delegation member American populace."However, when the report talks about the essential elements of European programs, there is no mention of ethnic minorities, and the essential partnership is seen as one involving "business, labor, in the discussions of an American-based sys- and governments." A recent "Issue Brief on tem as well. Like numerous other reports, the Youth Apprenticeship" from the Commis- Commission "Issue Brief" referenced above sion on the Skills of the American Workforce calls for "a national system to prepare young of the National Center on Education and the people for work," based on "the collaboration Economy clearly and compellingly defines of government, employers, unions and em- the need for "Youth Apprenticeship, Ameri- ployee representatives, and education insti- can Style" without once mentioning minori- tutions'. but does not mention parents, stu- ties (the "economically disadvantaged" re- dents, or community-based organizations. The ceive one reference). Although some reports America's Choice report calls for the estab- include statements that skilled crafts need lishment of Youth Centers for school drop-

NCLR The Forgotten Hik: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 9 I cannot conceive of an American youth Hispanic community-based education apprenticeship system which could serve and employment practitioners have Hispanics equitably and successfully without many questions about how an involving Hispanic community-based apprenticeship system would affect organizations as full partners in system Hispanic and other minority youth. development and implementation. NCLR recognizes that the U.S. has much to Raul Yzaguirre learn from Europe; perhaps nowhere is this clearer than in the area of career-related education. Some of the most nagging questions about how a European-style apprenticeship outs, but does not specify a role for minority- system might serve Latinos can be answered focused community-based organizations in through becoming more familiar with Euro- this process, nor are community-based orga- pean apprenticeship approaches, and through nizations identified as potential sponsors of consultation with apprenticeship experts and certified technical training programs. ethnic minority leaders in Europe. For ex- This lack of specific attention to commu- ample, there is a need for understanding of nity groups and minority Americans is of how ethnic minorities in Europe fare within special concern to NCLR. Minority commu- the apprenticeship system, compared to other nity-based organizations have typically been young adults: to what extent the overall edu- better able to reach minority group members cational system prepares minority youth for in need of services, especially the disadvan- apprenticeship opportunities or university, taged, than public agencies. Hispanic com- how tracking of minorities away from univer- munity-based organizations have long been sity preparation to the apprenticeship system the most effective providers of employment is prevented, what is done to protect minority and training services to Latino youth and youth from possible discriminatory treatment adults, and have become increasingly involved by their assigned "masters" or others within in education, including alternative schools the system, and how opportunities are pro- some of which report graduation rates above vided for minority youth who "fall between 90% for stud2nt bodies composed of public the cracks" of the system by dropp ing out of school dropouts and pushouts.Moreover, school or arriving in the country in their Hispanics are severely underrepresented in middle or later school years. policy-making roles in the public and private For these reasons, NCLR sought and re- sectors, and unlike the Black community ceived funding from the German Marshall lack minority-controlled colleges or reli- Fund of the United States and the Ford Foun- gious institutions. Thus Hispanic commu- dation for a carefully designed consultation nity-based organizations aro the community's in Europe, primary advocates and often their most effective service providers.

10 NCLR The Forgotten IX: Two-Thirds: An Hispanic Po spectire on Apprenticeslup, European Style The Consultation: Process and Participants

The NCLR Consultation on Apprentice- Presentations by federal, state, and mu- ship included a two-week study tour in Ger- nicipal agency officials with responsi- many, Denmark, and Sweden from March 14- bility for various aspects of the appren- 27, 1992. Designed to provide a direct under- ticeship systems, covering structure, standing of European apprenticeship pro- policies, history, standards, and other grams, it included visits to mainstream and components of the system; special apprenticeship and related programs Visits to and discussions with adminis- in and near Frankfurt, Essen, Copenhagen, trators, teachers, and students from a and Gothenburg; it also provided for discus- variety of mainstream and special ap- sions with minority leaders about how such prenticeship and related programs in programs are serving ethnic minorities and Frankfu rt, Copenhagen, and Gothenburg, the lessons which may be learned from the including programs with large minority European experience of minorities. Partici- student populations, programs specifi- pants included ten education/employment cally designed for immigrants, and alter- and training practitioners and organizational native programs for young people with leaders working with the Hispanic commu- special needs; nity, all with extensive community volunteer Discussions with minority young poop le experience. and minority leaders (including former The consultation provided for approxi- Ethnic Minority Fellows) about how mately one week in Germany, since the Ger- such programs are serving ethnic mi- man apprenticeship system is among the most norities and the lessons which may be frequently presented models for possible U.S. learned from the European experience application, and one week in Scandinavia of minorities; visits to special educa- (mostly in Denmark, with one day in Swe- tional and other programs for minori- den). 'The trip provided both a broad under- ties; and briefings on related issues such standing and a minority perspective on Euro- as immigration and anti-discrimination pean apprenticeship systems. It included: policies and their impact on minorities An initial briefing from former German within the apprenticeship system; and Marshall Fu nd Ethnic M inority Fel lows, Several interim work sessions and a fi- focusing on the legal status of iffirni- nal debriefingon the topic and the ent ire grants and minorities in the European trip, including planning for back-b.)tne Economic Community, and the struc- involvement in the policy debate on a ture of and experiences of minorities in U.S. apprenticeship system. apprenticeship systems in countries not NCLR and CDS International, which being visited, primarily the United King- handled scheduling and logistics for the con- dom, France, and the Netherlands (NCLR sultation, provided extensive briefing materi- coordinated the minority fellowship als to be reviewed by participants prior to the program for several years); trip. Participants received a half-day orienta-

NCLR The Forgotten Two-Thirds: An Hi:panic Persivctive on Apprenticeship, European Style Members of the NCLR Delegation* + Roger Cizares, Executive Director, MAAC + Hernan LaFontaine, Superintendent of Hart- (Metropolitan Area Advisory Committee) ford Public Schools from 1979-1991 and Project, San Diego, California, which carries now Professor, School of Education, Depart- out a wide range of housing and community ment of Administration and Supervision, development, employment and training, edu- Southern ConnecticutState Universit y, Hart- cati on, and ot her human services activities, ford, Connecticut. including job training programs associated + Douglas Patine, Ph.D., President of the New with the apprenticeship system. Palinership Foundation, San Francisco Bay + Mary Elise DeGonia, President, Capitol Per- area; formerly Director of the Arizona De- spectives, Washington, D.C., an expert on partment of Employment Security, Secre- employment and training legislation and tary of the California Health and Welfare regulations, including the Job Training Part- Agency, Director of the California Employ- nership Act ()TPA), apprenticeships and mi- ment Development Department, and Presi- nority employment issues. Advisor to NCL R dentand Chief Executivefficer of the Marin and other nonprofit organizations on em- Community Foundation, California. ployment and training. + Fred Romero, Ph.D., former director of Stra- Richard R. Ferias, then Executive Director, tegic PI a nni ngat id Policy Development, U.S. Association for the Advancement of Mexi- Department of Labor, Washington, D.C., and can Americans (A AMA), Houston, which a consultant to many organizations on em- runs the first accredited Chicano alternative ployment and training issues. Consultant to high school in Texas. Currently Executive NCLR on employment and training and Director oft he Tejano Center forCo mom nity farnnv-Aer issues.

Concerns, a youth-focused nonprofit organi- oeF. Yzaguirre, President of NCLR, the larg- zation in Houston. est constituency-based national Hispanic or- + Ana Sol Gutierrez, School Board nw mber, ganization; Chairman of the Independent Montgomery County, Maryland, believed to Sector and a member of the President's Ad- be the first Salvadoran elect ed official i n Ihe visory Commission on Hispanic Education, I.S. and the first Hispanic elected toil Board established as a resul t of Execlliive Order of Education in the State of Maryland. Pro- 12729, Educational Excellence for Hispanic fessional experience in the information in- Americans. dustry and computer sciences engineering. + Emily GantzMcKay,NCLR Senior Vice Presi- + Mary Gonzalez Koenig, Assistant to the dent for Institutional Development and Mayor for Employment and Training, City of Project Director for the consultation; over- Chicago, Illinois, responsible for Chicago's sees NCLR national demonstration projects, Job Training Partnership Act ()TPA) pro- including the education initiative, Project gram; 30 years of experience in employment EXCEL (Excellence In Community Educa- and training and community services. tional Leadership).

"Contact information for all delegation members is available from Nal?.

1.7 NC1.1:The I'mxotten IA: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style

26 tion session (including a video on the Euro- Education and Tracking, Occupational Selec- pean apprenticeship system) in Washington, tion, Employers and Master/Mentors, Unions/ D.C., just before the group departed for Eu- Guilds, Outcomes, and Implications for U.S. rope, from Karen Sieber of CDS and Anne Policy. In addition, the Project Director took Heald, then with the German Marshall Fund responsibility for obtaining information about of the United States. laws, poiicies, and practices regarding mi- NaR prepared for the delegation a spe- noritie&, Ilmnigrants, and "foreigners" and cific set of issues and questions to be ad- their implications for minority participation dressed, along with assignments for partici- in apprenticeship programs. pants to focus on certain issues. The most In addition to ongoing responsibility for important responsibility of each member of addressing assigned issues, twice during the the delegation was to provide substantive trip, after the week in Germany and at the end, input to the policy report, taking individual participants provided summaries of major responsibility for learning two of these issue observations related to their assigned issue areas or aspects of the European model and areas as well as any other comments they their implications for Hispanics, and docu- chose to offer. They also completed a final menting that information concisely but clearly report after the trip, either in writing or through for NCLR. Each issue area included some a telephone interview. The delegation held sample questions, which the participants were informal discussions and debriefings nearly responsible for getting answered during the every evening, and on the last day, specific trip.This approach was designed to help conclusions were generated and agreed upon. assure that meetings and visits were clearly This NCLR report presents and builds upon focused on obtaining specific information the delegation's individual and group experi- needed to address policy-relevant topics. ences and conclusions. The eight issues selected for emphasis included Structure and Control, Components,

NCLR The Forgotten Hif: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 13 Issues

1. Structure and Control 3. Education and Tracking

What is the basic structure of the apprentice- At what point, and on what basis, are tracking ship system in each country? To what extent is decisions made which determine which youth it controlled by the schools, various levels of go intoappremiceship programs and which youth government, the private sector, guilds/unions, receive university preparation? What are the or other entities? To what extent are systems various educational choices, and how do stu- national versus specific to a particular munici- dents enter each? What subjects do apprentices pality or "state"? Who sets up the technical study in the school portion of their apprentice- requirements and does the certification of pro- ship, and how are subjects presented? How do grams and individuals? Who sets the curricu- youth get tracked into special booster or reme- lum? How does the system keep up with con- dial programs? To what extent is the decision stantly changing technology? To what extent voluntary? To what extent is it based on grades. are advisory groups or elected bodies involved testing, or other factors? What evidence is there in oversight of the system? that the tracking decisions are appropriate and are good predictors of later success? If a student 2. Components in an apprenticeship track decides s/he wants to attend university, how can s/he change course, What is the typical path for an individual in what are the time and other implications, and each country, in entering and progressing how difficult is this to do? Do tracking decisions through the system? What is the balance of appear to be strongly correlated with economic education, vocational training in a school set- class, gender, and/or ethnicity? What are the ting. and on-the-job experience?'l'o what similarities and differences in how minority and extent do apprentices encounter up-to-date tech- non-minority youth are involved in decisions nology on the job, and where this does not about whether they should focus on academic occur, is the vocational training school likely to post-compulsory education at a university ver- prepare apprentices for using new technology sus apprenticeship training? What systemic or and equipment? How does the system deal with other factors protect minority youth from or young people who do not receive a strong place them at risk for inappropriate tracking? grounding in basic skills before age 15? How does the system address language needs for 4. Occupational Selection language-minority youth? What is being done for minority or other youth who have left the Within the apprenticeship system or track, school system or came to the country too late to how are decisions made concerning which job or go through compulsory education and appren- job cluster an individual will be trained for? To ticeships? To what extent does each country what extent is assignment to the hierarchy of have special or "booster" programs, or "youth occupations reflective of interest, grades, centers" like those proposed for the U.S.. and ethnicity, and other factors? Do particular enti- how do they function?To what extent do ties schools, unions, or compaMes play an European mi norities get i nto and complete these especially critical role in acceptance of young special programs? To what extent does involve- people into certain occupations? What happens ment in a special program close off opportuni- if the apprentice cannot find a "slot" within a ties for entry into programs preparing youth for company? the most prestigious occupations?

14 NCLR The loisotten Two-Thnils: An I bspamc :Tectwe on Applenticeship, Lwypean Style

28 ISSURS,Continued

5. Employers and Masters/Mentors 7. Outcomes

How do employers find and select appren- What are the apprenticesfflp outcomes such tices? What are their responsibilities as employ- as completion or "certification" rates, permanent ers of apprentices?What size and types of employment in the field of training, entry into employers are most and least likely to have advanced training, etc., for various types of pro- apprentices, and what are the determining fac- grams and occupations? What factors seem to tors? To what extent are apprentices hired by explain differences in outcomes? How closely the companies where they were apprentices? correlated are they with economic class, gender, To what extent do minority-owned businesses and/or ethnicity? To what extent do Europeans have apprentices? What is the role of "masters" entering a particular profession following an or mentors in the apprenticeship process? How apprenticeship tend to remain in that profession do individuals get to be mentors? How many for their entire working career? What European individuals do they mentor at the same time? countries and apprenticeship models/approaches How much say does a mentor have in assign- seem to have been most effective in serving ments made to him/her? What has been the minorities? experience of European minorities with such assignments? Do they appear to receive equal 8. Implications for U.S. Policy consideration for placements? To what extent do they receive the same kind of mentoring as What aspects of the European apprenticeship non-minorities? system, if any, appear promising for application in the United States, and why? What aspects of A 6. Unions/Guilds the system appear especially problematic or inappropriate, and why? What aspects seem valu- How are unions involved in the develop- able, but are likely to be particularly difficult to ment and oversight of apprenticeship programs? adopt or implement in the U.S , due to systemic What say do unions or guilds have in tracking differences such as decentralizelon of educa- and occupational assignments, including as- tional decision making, lack of national training signments to "masters" or other mentors? To standards. etc.? To what extent would it make what extent is access to training in a particular sense to adopt aspects of the model on a state occupation related to family tradition or other level as opposed to a national level? What policy non-merit factors? What has been the experi- actions orapproaches should NCLR recommend? ence of minorities in this process?

NCLR The Forgotten Hi*: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 15 Distant Allies: Differences in Population and Culture

Americans, especially White there are young people to fill them, while Americans, often think of Western there is high unemployment in other parts of Europeans as our closest allies and as the country, including eastern Germany. Yet the societies most similar to that of the few youth seem to consider moving from one United States. Yet there are some very region to another to find apprenticeship opportunities. significant differences between the populations and societies of Europe and These countries have not historically the United States. seen themselves as multicultural Particularly significant to the NCLR del- societies. egation are those differences related to popu- More than one-quarter of Americans are lation and multiculturalism. Hispanic, African American, Asian/Pacific Islander, or Native American, and many more The countries visited Germany, fit "comic" categories. Although the statistics Denmark, and Sweden are far are changing, most European countries have smaller than the U.S. in both population traditionally been far more homogeneous. As and physical size. a former German Marshall Fund Ethnic Mi- Unified Germany has a total population of nority Fellow explained to the NCLR delega- 79 million, Denmark about 5.2 million, and tion, "A German is only someone with Ger- Sweden about 8.5 million. The national ap- man blood," while an American may be of any prenticeship system in Germany serves a popu- ethnic or racial background. lation approximately equivalent to the 14 Today, many large European cities have easternmost states, from Maine to South Caro- become multicultural, and the countries are linabut in physical size Germany is smaller increasingly diverse in population, i f not nec- than Montana. Denmark has a population essarily in self-perception.Copenhagen is similar to that of Missouri but is physically a 20% minority, compared to 5% for Denmark bit smaller than Vermont and New Hamp- as a whole; nearly 10% of Danish school shire combined. Sweden falls about halfway children in 1991 were ethnic minorities.In between New Jersey and Michigan in total Sweden, about 16% of Gothenburg residents population, and is physically larger than Ger- are of non-Swedish ancestry, as are about many about the size of Michigan, Ohio, 25% of Gothenburg school children; Indiana, and Illinois combined. Gothenburg calls itself a "City of Immigrants." Frankfurt, Germany is officially 25% minor- The populations of these countries are ity, and this may be a significant undercount far less mobile than Americans. according to the director of the city's In Frankfurt, officials stressed that there multicultural affairs department. are more apprenticeship slots available than

NCI.R'The ForNotten XI: Two-Durds: An I hspanie Peispeetive on ApprenticesInp, Luropenn Style The term "minority" is not commonly 1973 Germany banned recruitment of foreign used in these countries; many people of labor front outside the European Economic foreign ancestry are still called Community (EEC), Before the recruitment ban, "guestworkers," even if they are third- the foreigners were called "guestworkers"; those who remained after the ban were called generation immigrants. "foreign workers." In 1974, Germany initi- The European countries visited by the ated a family reunification program which delegation tended to differentiate refugees allowed spouses and children under 18 to and asylum seekers from the other major join workers already in the country, and they group of ethnic minorities: "guestworkers." became the "foreign resident population." There are reportedly about 15 million ethnic The age cut-off for children was later dropped and cultural minority people living in the to 16, and the program effectively ended in indust:ialized countries of Western Europe. 1981. Several "voluntary repatriation" pro- Many came to Europe during the 1950s and grams were attempted in the 1980s, but the 1960s as temporary "guestworkers," actively foreign population in Germany remained rela- recruited through bilateral agreements with tively stable, with births replacing those who their home countries, to meet the demand for died or returned to their native countries. The labor in the factories, mines, and seaports of "foreign residents" face many legal limita- \ Vestern Eitrope. They came from many coun- tions, including difficulties in buying prop- tries, among them Italy, Greece, and Spain as erty or starting businesses. well as Turkey, Yugoslavia, Bulgaria, Paki- Today, the ethnic minority population in stan, and Morocco. Western and Northern Europe includes many In Germany, Turks and other nationality native-born children and grandchildren of groups constitute visible ethnic minorities, the original "guestworkers."However, ex- although the term is not commonly used. cept in the Benelux countries (Belgium, Neth- Instead, they are called "foreigners" (in Ger- erlands, and Luxembourg) and France, a per- man,auslanders),even if they were born in son is not automatically a citizen because of Germany. Prior to the reunification of Ger- being native-born. many, the population of the Federal Republic The status of "foreip residents" in Ger- (1 Vest Germany) included about 4.7 million many and some other EEC countries is fur- resident foreigners, about one-third of them ther complicated by the fact that they have no Turks.Most came for economic reasons, national immigration policy. Thus, for ex- often hoping to earn enough to return to their ample, there is no legislation specifying that a own countries and buy land or small compa- defined number cf immigrants may enter on nies. Some returned home during the reces- an annual basis as legal immigrants. Germany sion of 1966-67, and came back again after it does allow persons of German blood to enter ended. After encouraging the temporary mi- the country freely; thus residents of Russia gration of such workers for some years, in and other eastern European countries may

NCLR The Forgotten FIX: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 17 claim German citizenship on the basis of their along with increasing unification comes the ethnic heritage. Denmark closed its borders "harmonizing" of laws. This process is ex- to immigrants in 1972, although relatives of pected to make immigration and naturaliza- its former "guestworkers" have been allowed tion extremely difficult for anyone from out- to immigrate since that time. side the EEC. Germany and Denmark are full Most European countries do accept refu- members of the EEC; Sweden is not. gees, both d irectly (as in Germany) and through the United Nations (as in Sweden and Den- Minority civil rights protections are far mark). Recent news reports have highlighted less extensive than in the United States, a wave of anti-immigrant violence and the and there is no effective system to great challenges Germany faces in dealing prevent discrimination or enforce anti- with immigrants and political asylum seekers discrimination in education and during a time of economic difficulties, as well employment. as the efforts of many Germans to oppose racism and violence. Proposals to make the In Germany, the law actually promotes current liberal asylum laws considerably more discrimination against non-citizens, includ- restrictive are being debated by the German ing those born in Germany.According to parliament. minority leaders, the law requires that job preference be given first to German citizens, Germany does not allow dual citizenship, then to Economic Community citizens, and and naturalization is extremely difficult. that others be considered last including the Naturalization is less difficult in Sweden and former "guestworkers." In Denmark, officials Denmark. Denmark does allow dual citizen- reported that anti-discrimination laws exist, ship, and now views its former"guestworkers" but there is no enforcement mechanism. as permanent residents.Sweden always viewed them as immigrants. Naturalization Sweden does have an immigration policy, in Denmark now requires five years of resi- with stated goals of equality, opportunity, dence, a knowledge of Danish, and evidence and cooperation, and also has active pro- of attempts to become integrated into Danish grams often initiated by local governments society.Each year a list of applicants are to combat racism and encourage apprecia- made citizens by an Act of Parliament. tion of diversity. Sweden also has specific programs to facilitate integration of immi- Naturalization will become even more dif- grants;extensive programs existin ficult for "foreign residents" of the EEC in the Gothenburg.All three countries guarantee future. While there is now essentially free native-language instruction for children of movement among the EEC member countries. foreign ancestry.

18 NaR The Forsotten 14)(r. Ttvt'-Th,rd Au IIN,anw PeL".rect we on Apr eh tuce,hir, rnropean Styh. Understanding European Apprenticeship Systems

The United States has much to learn from public to human resource development, European apprenticeship approaches. These and the commitment to a skilled lessons include values, structures, aril com- workforce transcends any current eco- ponents which seem to work well for the nomic situation.Thus in Denmark, youth in these countries, and which might Carlsbad Brewery and in Germany, well be transportable to the U.S. The lessons Bergwerk Prosper-Haniel's mining op- also include weaknesses and caveats which erations continue to hire apprentices might well limit transportability or applica- even when they do not expect to have bility of parts of the European systems. permanent positions for them once they complete their apprenticeships. Com- Philosophy and Values: pany officials assume that sooner or later, they will need skilled workers, so they Critical Underpinnings should continue to train them.

Certain key values and philosophies un- A strong work ethic, inculcated early, derlie the European system of preparing and a belief that skilled work benefits young people for the world of work. These the entire nation. values are of critical impvtance in understanding and adopting aspects of the This belief is well exemplified by a motto European system, and some are quite differ- carved in stone outside the Carlsberg ent from the values underlying the U.S. edu- Brewery in Copenhagen:Laboremus cation and training system. NCLR believes pro ()atria. that unless the United States adopts certain of these philosophical underpinnings, it is unlikely to successfu lly implement a European- style apprenticeship system. The delegation found the following values to be particularly significant:

+ Human resources as the most critical 44 The psychological centrality of work in the life of natural resource of the country. Europeans and the importance of good preparation for work are reflected in the These countries lack the minerals and curriculum and the pedagogy of the school and other physical resources of the United of the workplace. In short, Europeans view an educated States. They see people education as preparation for employment. 99 workforce as their major means of maintaining economic success and com- Dr. Fred Romero

petitiveness in the world. There is a 11111111114* shared national commitment by companies, unions, the government, and the

NCLR The Forgotten HIC Two-Thirds: An Hispanic Perspective on Amen t:ceship, European Styk 19 4' A wonderful reality in Germany is the pride and value given to those certified in the crafts and trades. Because of the high standards and requirements, they seem to be on an equal footing with ------university graduates. 9' system is viewed as primarily an institu- Mary Gonzalez Koenig tional responsibility. Successful completion of the apprenticeship seems almost assured, dependent upon a supportive environment with employer commit- rnent and responsibility for student suc- Prestige and earning capacity for the cess. There are many "second" chances skilled occupations. and options. In Denmark, if an appren- As in the United States, university prepa- tice fails the final certification test, the ration is considered the most desirable employer is required to pay the indi- alternative for young people, and this vidual as a skilled worker until s/he has view appears to be increasing. People been prepared to retake and pass the test. the delegation met with in both Ger- In Germany, a senior official from a state many and Denmark stressed that the Ministry of Education, asked about the percentage of youth desiring a univer- percentage of system dropouts, made it sity education had increased to 50% or clear that there should not be any. more.In 1989, nearly 22% of young Germans were enrolled in higher education, compared to less than 16% in 1980. 64 The most critical general However, youth who prepare for skilled principle I could observe is technical or commercial occupations are the firm belief they hold that also well respected and this is reflected in their pay levels and the open- their youth can succeed. ended career paths that credentialing Their expectations are provides. Many of these occupations structured accordingly. Their have been recognized and respected for commitment to the youth is hundreds of years, reflecting the strong reflected in their policies, trad ition of the guilds. Moreover, espe- their instruction, and their cially in Germany, there is a high regard public will. 99 forclear and structured training, directed Dr. Fred Romero at meeting national standards.

+ A belief that everyone can learn and will learn. There is an institutionalized expecta- Structural Characteristics tion for success for the entire population of vou ng adu its. In fact, a young person's Apprenticeship discussions in this coun- failure in the education and training try otten focus on how an apprenticeship system itself might be structured, without

20 NCLR Mt' Prgotten Fpft: Two-ThIrds: An kbspanic. Perspectwe (ns Apprentsceslup, kuropenn Style relating it to the overall education and train- " The largest difference between our countries is ing system or to any broader economic policy that the 'job' of young people aged 16-24 is to go or national priorities. Yet any apprenticeship system must bui ld upon the basic educational to university and/or an apprenticeship system. system and be coordinated with job training When they complete training and enter adulthood, systems for adultsand must have a commit- they have employer-recognized skills and can ment of ongoing resources. smoothly enter the labor market. In the United The NCLR delegation considers the fol- States, the picture is different for many American lowing underlying national policies, financ- youth, whose job is to find and pay for shelter, in.; systems, and institutional structures criti- food, and transportation, and if they can afford it, cally important undergirdings for the appren- go to school. There is no guarantee that they will ticeship systems in the countries visited. receive a good job at the end of training. 91 Mary Elise DeGonia A strategic national industrial policy which undergirds the entire education and training system. The federal governments are closely involved with industry and labor in deter- ship period. This makes it possible for mining labor market needs and assuring all youth to remain in training for the that education and training meet those three or more years required to obtain needs. the skills essential for success in the workplace.Youth from low-income A highly unionized workforce. families are under far less pressure than The large majority of workers in these Americans to take a job, even an un- countries are union members.More- skilled one with no promise of future over, many of the unions trace their roots mobility, in order to help support their to the medieval guild structure. Unions families. are a strong and active force in education, taining, and employment. A legislative base and taxing structure which support the education A solid social support system and training system and related underlying the education and training social welfare programs. system. Companies providing apprenticeships These countries believe that it is the job receive some of their money back in the of young people to obtain education and form of tax incentives or direct pay- training, and proviie wages or living ments to partially cover trainingstipends allowances throughout the apprentice- or other costs. There is a continuing, consistent commitment of significant

NUR The Forgotten HX: Tula-Thirds: An Hispank Perspectim on Apprenticeship, European Style 21 66 We saw German apprentices using calculus and solid geometry in their work. We saw Danish commercial schools where young people typically spoke three or more languages. These young people are not coming into apprenticeships unable to read and write in their native language, do There is no national curriculum. fractions, or understand percentages. Their basic In Sweden, financing of primary and sec- education is solid and comprehensive. " ondary schools is equally shared be- RaCJI Yzaguirre tween the federal government and the municipalities, with increasing local control over administration.Denmark's school system is highly decentralized; the municipalities control and finance resources to the education and training primary and lower secondary schools, effort.In Denmark, all employers and with a small amount of federal funding. employees contribute to these costs On the other hand, pedagogical supervi- through stat utory contributions paid into sion and examinations for upper sec- the Vocational Training Fund; appren- ondary schools are the responsibility of tices receive training wages while work- the federal Ministry of Education.In ing for a company, and grants from the Germany, the public school system is federal government during their school under state supervision, and there are periods. considerable variations by state. In all Apart from the apprenticeship systems, three countries, higher education is gen- school.financing and administration in erally publicly financed and free; in the these countries are more centralized than U.S., the federal government covers about in the United States, although the trend 13% ofhigher education costs, states is towards greater decentralization of pay about 29% and local government primary and secondary education.In less than 3%; the majority of higher the U.S., the federal government pays education financing is private and about 6% of primary and secondary edu- even community colleges and state uni- cational costs, compared to 45% from versities have increasingly high tuition state and 40% from local government; costs. the rest comes from non-public sources. A compulsory education system of high quality, which provides the foundation for laterschool and [In the countries we visited,1 schools emphasize workplace learning. student effort rather than ability, and they emphasize giving most young people an even A youth entering apprenticeship train- start....The "proper" mindset of reformers in this ing already has strong basic language, country is not there yet. " literacy, and math skills. S/he doesnot typicallyneed remedial language or math Dr. Fred Romero training, although there are alternative programs for those who do.

22 NCLIZThe lOrgotten Ilift Two-Thirds: An Hispanic Perspective on Apprenticeship, furopean Style 66 Especially in Germany, there is a seamless system of programs to prepare people for the labor market. Government, education, and business work together at A variety of educational approaches are the federal, state, and local level used, and particularly in the primary to make the system work. In the and lower secondary schools the cur- United States, we have lots of riculum and approaches vary by state or locality. Some of the approaches used excellent small programs here are quite different from those in U.S. and there. We do not have schools. In Denmark, for example, there systems. m is no ability grouping; students remain Mary Elise DeGonia with the same fellow students throughout their early education.

Critical Apprenticeship There is genuine, ongoing, institutional- Components ized collaboration which is heavily substantive, not merely procedural. In The NCLR delegation identified many as- German dual system, the decision-mak- pects of the European apprenticeship systems ing process starts in the Federal Institute which seemed particularly important and ef- of Vocational Training (Bundesinstitut fective. These components are different from fur Berufsbildung or BiBB), which is the U.S. education and training structure governed by a tri-partite Main Board although sometimes the differences are a including representatives of federal and matter of emphasis, glue, and resources. The state government, trade unions, and U.S. has many of the same elements, but their employer associations.In Denmark, relative importance is different, they do not fit vocational education and training are together in the same way, and many are chroni- administered and financed by the fed- cally underfunded. It might be argued that the eral government, through the Depart- U.S. does not have an education and voca- ment forVocational Education and Train- tional training "system." ing within the Ministry of Education, The following components deserve care- which cooperates closely with industry ful study by U.S. education reformers and and labor. practitioners; the delegation did identify some problems related to them, which are also Employer's play a major role, along with educators and union officials, in setting noted. national training standards. Committee A partnership at schools, business structures at the national and local lev- and industry, and unions which els bring these partners together to help assures that these countries educate determine school curricula, structure assessment and credentialing instruments, tor employment. and develop work experience. In Ger- many, 200 chambers, 1800 technical

NCLR The Forgotten H Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 23 colleges, and 600 employer-related group profit structure of the United States, training centers assure that these stan- nonprofit organizations provide a vari- dards are met. In Denmark, the Depart- ety of "second chance" programs, and ment defines the professional/pedagogi- alternate entry points into apprentice- cal content of vocational programs ships for individuals and groups with through the Council for Vocational Edu- special needs, such as immigrants, mi- cation and various national trade com- norities, school dropouts, and persons mittees, which are in turn based on local with disabilities. committees responsible for ensuring that requirements are met. Representatives 4- Considerable federal funding, as well of trade unions, employers, and educa- as oversight and coordination. tional institutions also work together on The delegation was surprised to d is- state committees where they help to de- cover that few public officials except velop curriculum and competencies for senior federal personnel had informa- specific occupations, and participate in tion about budgets for education and training committees within various in- apprenticeships, and few program staff dustrial or craft chambers. Employers could provide any sense of funding pro- provide apprenticeship "placements" for cedures or levels. Almost no outcome young people even when they have no evaluation information seemed to be expectation of hiring them at the end of available.It was clear, however, that the training period. Unions are deeply education and vocational training involved in apprenticeship training due through the youth apprenticeship sys- to the key role of "masters," Vhi le these tems operate with significant federal countries lack the well-developed non- involvement and strong national support.

" It is refreshing to come across a system in - Integration of theoretical and which different segments agree and act on the practical learning, through a notion that collaboration and cooperation are both coordinated system of in-school and more efficient and yield greater benefit to the on-the-job learning for apprentices. student and the employer. Businesspeople and educators in the U.S. need to stop blaming each In Germany, apprenticeships last two to three and a half years, and apprentices other and focus their energy on creating a more spend one or two days each week in viable transition process for our students to school and the rest on-the-job. In Den- progress from school to work. 19 mark, apprenticeships last three to four Hernan LaFontaine years and include both school-based education and job placements, the latter lasting one or two years; students spend

24 NraR The Forgotten 1-f: Tzpo-Third:.: An I liqminc Pe):.pecth,e on Apprentice:.hip, Luropean Style of small companies; two-thirds of the 11 The focus is on practical total investment in these centers over knowledge, not theoretical or the past 15 years has come from the factual knowledge. N federal government through BiBB.In Denmark, not onl y the government hut Ana Sol Gutierrez also private companies assist the technical colleges in acquisition of new equ ip- ment, so that their future workers wi I I be trained to use the latest technology.

alternating periods often 10-20 weeks A sizeable, ongoing commitment of in each of the two environments. resources and time from business Standards for success in the apprentice- and industry. ship system are reflective of standards of Employers are the critical element in the workplace, and the academic and youths' transition from school to work, worksite components share a common and companies consider it to be their focus. The abilities valued in the work- responsibility to hire and train appren- place, particularly problem-solving tices. Structures and systems assure the skills, are also valued in the school- continuing preparation of a trained based instruction.The problems se- workforce, regardless of short-term eco- lected for school-based instruction are nomicconditions or individual employer problems likely to occur in the work- needs, with the recognition that the place, such as troubleshooti ng electrical economy will event u problems in a circuit panel. ally demand these A system which provides education skilled workers. Busi- 44 President Clinton has and training institutions with access nesses of allsizes par- announced plans to establish a ticipate; in Germany, to the newest technology. national communications 38% of apprentices highway. As the nation receive their voca- Training keeps pace with technological improves the technology changes. Unlike many American vocational instruction in available to business and tional schools, European ones are using firms with fewer than state-of-the-art computers and equip- 10 employees,25% in industry, we must assure that ment, preparing students for new tech- firms with10-49em- the same technology is made nology. In Germany, the federal govern- ployees, 22% in firms accessible for education and ment invests heavily in assuring effec- with50-499employ- training. tive instruction and state-of-the-art tech- ees, 13% in firms with Mary Elise DeGonia

nology for inter-firm or group training 500-999 employees, WM!, centers, which are typically joint efforts and only 1% in the Tr

NCLR The Forgotten Hlf: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 25 _ largest firms those with more than Coherent, "transparent" education 1,000 ehiployees. and training paths leading to In Germany, in-company training costs occupational competency. are borne largely by employers. Accord- The system provides multiple chances ing to a government study based on 1989 expenses, 48% of the costs went for for attaining success and several clearly defined but different paths for achieving trainee wages, 41% for training person- vocational skills.As Australian re- nel costs, and 11% for training materials searcher Margaret Vickers has noted,of and related expenses. From 24% to 67% the 26 industrialized member countries of the costs of initial training for appren- of the Organization for Economic Coop- tices are recovered through their pro- eration and Development, only the ductive work, depending upon the type of occupation and industry; productive United States has just one secondary school system, rather than multiple types performance has been estimated at 24% designed to meet d iffering student needs. in industry, 36% in small crafts companies, and 67% in agricultural occupa- The German "dual system" actually has tions, While employer commitment still three major types of secondary schools, appears strong, some large companies two of which feed primarily into ap- have expressed concerns in recent years prenticeships and one into university. over the increasing cost of apprentices. Both the German and Danish systems Reasons given for this concern include are relatively "seamless," designed to difficult economic conditions, the high include and be successful with every- economic cost of the reunification of one. Some people do drop out, but the Germany, and a feared loss of interna- percentage is extremely low compared tional competitiveness due to high pro- to U.S. dropout rates perhaps 5-10% duction costs. and an increasing number of "second The involvement of a very large number and range of companies has both advan- tages and disadvantages; a German offi- " The U.S. stresses the cial noted that in spite of contracting and importance of a college national standards, there are significant education without providing differences in quality of apprenticeship similar emphasis on preparing training not only among occupations non-college youth for but also among firms.For example. employment. 99 some employers, including retail businesses, have used apprentices as low- Dr. Fred Romero wage workers rather than focusing on their training.

26 NCLR The Forgotten lit Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style

4 0 chance" programs help these young parable training, leading to the same people re-enter the system and emerge certificate as other apprenticeship pro- with the same skil ls as other youth. Stu- grams. dents in Denmark have greater flexibil- National standards which define and ity to move act Jss educational and training paths than in Germany, and may describe a wide range of skilled even drop out of the system for a while occupations and the competencies and then re-enter through an alternati ve associated with tfrm. program which offers the same ultimate A wide range of skilled occupations are certification as the mainstream system. "apprenticeable" in Europe, and each The U.S. probably has greater experi- has a clearly defined set of skill stan- ence and expertise in running alterna- dards and competencies.Preparation tive programs, but Germany, Denmark, time may vary, especially in Denmark, and Sweden believe they must be avail- but everyone takes the same test at the able to all youth who have not fared well end, and thus the resulting certificate is in the regular system. Sweden's Youth of high value, accepted by employers Centers offer some special, small pro- nationwide and often in other EEC grams. In Gothenburg, a music program countries as well. There is a clear defi- for punk rockers had 12 students learn- nition of education and training out- ing by developing a band a far cry comes and a system which reflects a from U.S. music magnet schools, typi- commitment to reaching them.Ger- cally designed for mainstream, "non- many has national standards for each problem" youth, to encourage integra- occupation, and a certificate earned in tion. A self-directed program for female the north of Germany is valid in the students served young women who had south as well.In Denmark, the certi fi- left school or felt uncomfortable in mixed cate also provides union membership. classes due to male dominance; program operators shared results of a study that showed that boys typically receive far more resources and teacher attention than girls in mixed classes.There was some concern within the NCLR delega- 66 What we have to do is really take a look and tion that these programs may isolate review and evaluate our K-12 system.If we don't special-needs youth. Germany's "sec- start with that, then we're going to end up con- ond-chance" programs, many of them stantly with second and third chance programs. " run by nonprofit organizations, seemed Mary Gonzalez Koenig particularly effective at moving youth and young adults into the training mainstream and or providing genu inely corn-

NCLR The Forgotten If Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 17

4 o Limited use of paper-and-pencil " We tend to look at tests, and extensive use of apprenticeships only in the performance assessments. building trades, whereas the Assessment in most trades is based on Europeans use an cum u lative knowledge and ski l Is ga ined apprenticeship program for over a time period of at least three years. business, banking, health, and Interim examinations are given prima- other professions. " rily to provide information on each youth's progress and to identify know- Roger Cazares ledge gaps and needs for further instruction. Use of a project approach is pre- ferred to testing in the final certification process. A cabinet maker bo ilds a cabi- Both countries are also increasingly net; a person who will be responsible for grouping occupations into "families" keeping an assembly line movingwillbe requiring related skills, which facilitates expected to trouble-shoot and "fix" z. movement among related job categories. system that is "down."In Germany, Because rapid changes in the labor mar- craft and occupational chambers orga- ket often require career changes several n ize the examinations. Both interi m and times during a person's worklife, they final examinations are organized and are moving away from the previous high conducted by examination committees separation between recognized occupa- set up by the chambers, with committees tions. Denmark has 85 basic vocational composed of representatives of employ- education programs. Germany now has ers, employees, and at least one educa- 378 trades in which apprenticeships are provided, according to data from the Federal Institute for Vocational Train- " Accountability doesn't always ing. Several German educators and officials felt that the number of separate come in the form of paper and occupations was a problem, due to what pencil tests. Performance one called the "high separation between assessment is alive and well the recognized occupations," making it in Europe. " hard to move from one occupation to Hernan LaFontaine another to adjust to changes in the labor market.

28 NCLR The I orgotten IX!: Two-Thirds: An Hispanic Pei spective on Apprenticeship, European Style

42 tor. There is limited use of the kinds of standardized paper-and-pencil tests which are so often used in the U.S., and Vocational education should be integrated into which have been found to create bias traditional education, bringing the two together. and disparate impact against minorities. This will help to make all students aware of career choices.In the U.S., students get almost Extensive career counseling and no vocational/career guidance; the German extensive career information. system of vocational information centers While career awareness efforts do not is wonderful. " always begin at a very young age, they Ana Sol Gutierrez are well structured and intensive, especially in Germany. Career information courses are offered in the seventh, eighth, and ninth grades, and students typically bor Office staff.In occupations with a participate in two weeks of job shadow- shortage of apprentices, companies ing or work experience arranged by the sometimes do recruitment at schools. schools, with employers providMg in- Availability of apprenticeship opportu- formation on student performance to the nities also varies with the state of the schools. Students receive a catalog of economy. However, regardless of the occupations and other written materials business cycle, occupational selection designed to provide early occupational in Europe is a joint venture between exposure. Each student typically meets young people seeking apprenticeship individually with a counselor from the opportunities. counselors, and employ- Vocational Information Center of the ers. employment office during his/her last year in compulsory school, and also visits the Center with a group. The Center has user-friendly computer-based occupational information, videos, and exten- 66 Many career information programs in this sive written materials on over 300 occu- country are as good as or better than the German pations; counselors provide assistance system. What we need to do is raise the quality in locating information and determining of the 'minimum systems' and expand its locations where training is provided for availability through technology, without losing specific occupations. the superior programs. " As in the United States, occupational Mary Elise DeGonia selection takes many forms e.g., family tradition, knowing someone, self- =ME. initiated selection, advice from the La- Tif

NCLR The Forgotten FIX Two-Thirds: An llispanic Perspective on Apprenticeship, European Style 29 " In Germany, 'maters' are the key to an 'ideal' form of training one-on-one, learn by doing but guided by an expert. 'Masters' are highly qualified pleted several years of work experience, and highly respected. They serve as role models to but also received additional training lead- students as workers as well as teachers. This ing to a second certificate.There is strongly supports the work ethic that underlies the nothing comparable in the United States; entire school-to-work system. N senior professionals are often supervisors, but their emphasis is on produc- Ana Sol Gutierrez tion, not training. An official of one large Danish company vir reported that there were typically five senior workers for every apprentice, so Whilethe Centers are user-friendly and the apprentice had opportun ities to learn comprehensive, the NCLR delegation did from many experienced workers. Visits hear concerns that career decisions are to commercial colleges in Denmark sug- made very young (often at 15 or 16), and gest that the concept of a "master" may that "too many young people are trained be mole applicable to the traditional in vocations they do not like, or we do and male-dominated trades than to not need." the commercial/business sectorwhich Both Germany and Denmark are moving includes far more women.It appears, towards an extended period of school- especially in Germany, that "masters" based preparation, a period devoted to are far more likely to be males than exploring a range of vocational options iemales, regardless of occupation. before initiating part-time schooling al- Teachers/masters are also seen as coun- ternating with on-the-job training. selors. For students who have dropped out of the system and enter alternative Extensive involvement of a "master," programs, they help to provide positive as not merely a highly skilled worker but also a trainer. There is great emphasis on assuring that training is provided by highly qualified " The credential of the 'master' persons. The title of "master" is used in includes mastery of generic a very wide range of trades, but with skills useful in a cluster of related well-defined paths to qualification. occupations, high-level mastery Trainers must have both extensive prac- of a trade or craft, and tical experience and "pedagogical train- knowledge of the pedagogy ing." Supervision of apprentices on the related to the trade or craft. job must be provided by a "master," an Dr. Fred Romero individual who has not only received a "journeyman's" certificate and coin-

30 NC1,12 Tlw ForNottm 1-Arf: Two-Thirds: An Hispanic Perspective on Apprentice:hip,Luropeon Style . supports and time to learn through non- which are to be a part of all skill training; judgmental, non-rushed practical suc- they include learning how to learn, p rob- cesses and experiences. A student can lem-sol ving capacity, skills which are take a year away from formal schooling transferable across occupations, and but still keep multiple options open, re- teamwork including teamwork among entering the apprenticeship system. people working in different occupations. This is a growing focus. One German A serious hiring process and official observed that initial training and formalized "contracts" governing the further education are not efficiently apprenticeship relationship. linked; technical colleges in Denmark provide both apprenticeship and ad- Once a student has made a career choice, vanced training, and the link is clear. or narrowed his/her interests to several possible occupations, help is available from a public agency to identify apprenticeship openings.In addition, family and personal contacts come into play. Finding an apprenticeship is like finding a job; it involves interviews and selection by an employer. In Germany, Theirs is a total quality system each apprentice signs a contract with an from the classroom to the work- employer which specifies the skilled place: ours is a collection of trade for which training is to be given, disjointed, short-term educational organization and scheduling of various experiences or 'parts.' While we aspects of the apprenticeship. supple- mentary training measures, length of focus on the 'here and now,' training, pay, and the personnel policies they look at the 'there and then' governing the apprenticeship. a global commitment to preparing and maintaining a Recognition of the need for lifelong skilled workforce for the future. 99 learning. Ana Sol Gutierrez Both Germany and Denmark recognize the growing need for increasing, broadening, and upgrading skills at various stages in the individual's working life. Denmark strongly emphasizes critical thinking, and learning in the context of how the information is to be used. Ger- many has identified "key qualifications"

NCLR The Forgotten IX: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 31 Lessons from the European Apprenticeship Systems

The delegation assessed key elements and looked particularly at issues related to indi- aspects of the European systems from an His- vidual outcomes, inclusiveness, tracking, and panic and from a U.S. perspective. Much of transportabi I ity. what the group found was positive, but there %yore also areas of considerable concern. NCLR Outcomes

The members of the delegation have long SPECIAL LESSONS believed that the key to international competitiveness for the United States is a "trained A focus on training early in the development of the individual workforce"; however, this trip provided a "up-front" occupational preparation for all young people new understanding of that term. The delega- rather than "deficit" training for the unemployed. tion sees a clear correlation between the coun- Long-term training skill development which combines tries which outperform the United States in education and practical experience, typically lasts three to four productivity and quality and the system they years, and leads to a skilled worker or "journeyman's" certificate. use for preparing their workforce. Participant-friendly training, designed to minimize the fear of The overall quality of training appears to failure. Youth grow up expecting to succeed in theiroccupa- be very high. In apprenticeship programs, the tional preparation. Even the "theoretical" education is typi- primary outcome is a skilled individual, not cally linked to job needs, so that, for example, higher math is necessarily a degree or a job. Outcomes are taught in the context of occupational demands. clearly defined and well understood in terms Multiple paths to success, including programs, oftenrun by of skills and qualifications required by each nonprofit organizations, which bring dropouts back into the trade. Students therefore have a clear picture system and enable them to obtain the same certificates as other of the knowledge and skills they will possess apprentices. upon completion of their apprenticeship, and Competency-based training, with competency-based assess- of their career options. Youth reach adult- ment, and very limited use of paper-and-pencil tests. hood with a documented work record along with a certificate which is portable, nation- Strong value placed on multilingual capacity among skilled ally recognized, and competency-based; it is workers as a component of global competitiveness. For evidence of work readiness and exchangeabl e example, all Danes take five years of English as well as several for continued employment with the training years of German, and it is commonplace for upper secondary firm, for entry to another employer in the school students in commercial courses to have studied fouror same trade or profession, for continued edu- five languages. cation or training, or for retraining in another Training not for the "here and now," but for the "there and field. then."There is a growing emphasis on developing skills Completion rates appear high perhaps relevant to a family of occupations rather than one single job, 90% in Germany although the training is as a means of developing a workforce adaptable to economic rigorous, disciplined, and highly regimented. and technological changes. Moreover, nearly all graduates seem to obtain

32 NCLR The Forgotten I-Xrf: Two-Thu cis: An 114nnie Perwetwe on Apprentteeslup, Lirwpm Style jobs, though not always in their fields. Those egation visited. The term "minorities" is not in lower-paid occupations seem more likely commonly used in these countries.In Ger- than those in higher-paid occupations to com- many, the non-ethnic-German population in- plete training but find employment in a differ- cludes Turkish and other "guestworkers" and ent occupations. There were reports, for ex- their children (many of them born in Ger- ample, of bakers working in automobile and many) as well as refugees from throughout the other factories. wodd. Surprising to the delegation was the lack There was no provision for serving new of apparent emphasis on system research immigrants not fluent in the country's pri- and evaluation. The government officials mary language. While the delegation did see and local program operators alike found it and hear about minorities participating in the difficult to provide statistics on system inputs various apprenticeship programs in Germany, (in terms of funding) or outputs (in terms of officials seemed to automatically assume that statistics on completion or dropout rates). "foreigners," whatever their status, would be One German official claimed that no one fluent in German before entering an appren- dropped out of school before completion; ticeship program. There seemed to be few others agreed that there were dropouts but programs which could provide German lan- were unaware of studies or statistics docu- guage training as a part of the technical train- menting the extent or correlates of the prob- ing; language training had to be obtained first, lem. The almost universal response was that outside the dual system. The delegation vis- "nearly everyone" entered either university ited one large school which provides German or an apprenticeship, that those who had as a second language training for new immi- special problems or needs could re-enter the grants; its highly committed staff were ex- system through a number of alternative paths tremely busy attempting to meet the need for or programs, and that-very few" young peop le German ski Ils. The delegation was told that in obtained neither a university degree nor an some cities, "foreigners" have traditionally apprenticeship certificate. There was also a held unskilled positions; however, these jobs lack of information on what differences spe- are fast disappearing. cific programs or approaches made; for ex- Similarly, in both Denmark and Sweden, ample, whether the existing Danish voca- "foreign" students were reportedly welcome tional guidance system was helpful, or whether within all programs, but the implicit language it might pressure or force young people into barrier remained.Recent arrivals, mostly particular careers. refugees, are unlikely tospeak Danish or Swed- ish; they simply cannot participate in appren- Inclusiveness ticeship programs.Language programs do exist, but not within the apprenticeship sys- Immigrants and minorities do not fare tem.Immigrants must first learn the lan- well in the apprenticeship programs the del- guage, then seek education and training.

INICLR The Forgotten Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 33 For native-born minorities, the language available apprenticeship positions, very few problem may be removed, but discrimina- minority group members could find position remains.Swedish program operators tions, and many were serving apprentice- admitted that discrimination and racism exist ships in the vocational schools nothing like and see this as a relatively recent phenom- the regular job-site experience. Overall, these enon resu lting from recent attempts to resettle countries have low birthrates, so may depend immigrants throughout the country, bringing increasingly upon immigrants and minorities some Swedes into contact with immigrants to meet labor market needs.However, the for the first time; the delegation was told current economic conditions frequently about extensive national and local anti-rac- make these groups unwelcome, and as the ism campaigns. In all three countries, when EEC countries become increasingly integrated contact with immigrants occurs during diffi- and their employment systems "harmonized," cult economic times, it is easy to blame them it appears that employment preference will be for the situation. given to citizens of EEC countries, and em- Officials in Sweden and Denmark reported ployment of non-EEC citizens will become that experience with second-generation m i- extremely difficult. nority group members the children of im- Women are greatly underrepresented in migrants is very brief. Non-Danish youth non-traditional occupations and in appren- born in the country seemed fairly optimistic ticeships for many of the highest-paying oc- in spite of the often negative employment experiences of their parents. However, both officials and minority group representatives In Germany, the five most popular in all three countries reported that minorities occupations for male and female face great difficulties in becoming part of the apprentices in 1989 were: economic mainstream. Support systems of- For female For male ten do not exist to assure that disadvantaged apprentices: apprentices: and underrepresented youth have opportunities to participate fully in apprenticeship pro- Hairdresser Mechanic grams. Retail Electri; In addition to a lack of civil rights protec- salesperson fitter' tions, there is a clear correlation between economic conditions and apprenticeship and Office Machine employment opportunities for minorities. In employee fitter Frankfurt, where there is a shortage of young Doctor's Joiner people to fill apprenticeship positions, receptionist auslonders were able to obtain apprentice- Industrial Clerk in ship positions. In Copenhagen, where there clerk wholesale/ was a '10% unemployment rate and the num- foreign trade ber of applicants exceeded the number of

34 NCLR The Forsotten IX Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style

48 cupations.The delegation saw almost no women in manufacturing and construction 66 In spite of the official explanation that women's lack oriented apprenticeship programs in Germany, interests and federal legislation resulted in the and only a small number in Denmark. Ger- of participation in many types of apprenticeship many, especially 1Vest Germany, has arela- programs, their arguments rangweakly in the face tively low rate of female labor force participa- of our advances in the U.S. " tion; it was just 32% in1980and is expected Hernan LaFontaine to grow to 45% by 2000. Although 40% of current apprentices are women, they are highly concentrated in certain professions. Sweden has the highest female labor force Community would weaken women's rights participation rate among women in the world , reportedly influenced the Danish vote in late and Denmark is secondover 70% of women full European integration. are in the workforce in Denmark,and over 1992 against 80% in Sweden.In Denmark, the NCLR Employers play a critical role in making delegation was told about demonstration pro- any apprenticeship system work for minori- grams to get women into non-traditional ap- ties and for women.Apprentices mustobtain prenticeships, but such efforts seemed to re- "contracts" from an employer for their work- ceive even less emphasis than in the United place training. The delegation saw clear evi- States. "Family and societal pressure" were dence that in recessionary periods, employ- seen as major obstacles to getting womeninto ers were hiring non-minorities insteadof mi- higher-paying occupations. norities, even according to some instruc- when the minority youth were highly Some European countries, including Ger- tors competent. While the United States provides many, still have work rules to"protect" women less freedom to discriminate than most Euro- in the work force, such as restricting evening work and many factory positions. These laws serve to block women from many ofthe best- paying apprenticeships. The delegation was also told about considerable resistance to "If you are a single morn or the head of a women in non-traditional occupations among household, and you need to pay the rent and put male workers in those occupations, with many food on the table and clothes on the backs of your of the same arguments used as in the U.S. kids and educate them, you are never going to be no women's restrooms, frequent use of"bad a part of a system that requires long-termtraining language" that might upset women, belief that unless it provides living wages during the women lack the strength or tenacityfor the training period. " job, probable resentment by wives of the male Mary Gonzales Koenio workers, etc. In Denmark, concern that "harmonizing" of labor laws within the European

NCLR The Forgotten fix Two-Thirds: An Hispanic Perspective on Apprenticeship,European Style 35

4D to identify than the solution: What happens if " Given America's history of the "masters" d iscrim inate? placing students of color in Hispanics are significantly overrepresented special education, we must among non-college-bound students, thegroup guard against tracking. 99 for whom apprenticeships should offer the Dr. Douglas Patel() greatest potential benefits. Thus it is criti- cally important that apprenticeships be genu- inely open and inclusive. pean countries, enforcement of equal em- Tracking ployment opportunity laws has been modest Tracking remains a significant concern. at best, especially in recent years. Employer NCLR looked in detail at how the various sanctions legislation makes employers respon- systems and programs serve non-typical stu- sible for determ ining whether applicants for dents, from language and ethnic minorities to jobs are legally entitled to work in the United women, the handicapped, and older trainees. States; according to the General Accounting Given the long history of education and em- Office, this legislation has led to a high level ployment discrimination in the United States, of discrimination against U.S. citizens and the group believes that careful safeguards are legal residents who fit immigrant stereotypes. required to assure that Hispanics and other The European system offers little guidance on minorities are not tracked in any of three how to assure that minorities have an equal ways: chance at obtain ing apprenticeship contracts. Tracked into apprenticeships when they Since "masters" are so important to the should be pursu ing the coursework to learning process, the delegation felt that they enter college; represent both a critical resource and a potential barrier to minorities. The group saw many "masters" who clearly served as men- " The dependence of the German tors, motivators, shoulders to cry on, and dual system upon 'masters' can sources of enormous support to apprentices. be both a strength and a Some of them reported going to the homes of weakness. The 'master' can be a new apprentices with special problems to be sure they got to work on time, and in some critical determinant of cases serving an almost parental role. Teach- success or the primary cause of ers in some of the technical colleges clearly failure for minority served similar roles.The delegation also apprentices. 99 heard about some workplaces where minori- RaCil Yzaguirre ties or women faced uncomfortable or hostile environments. The problem is easier

36 NCLR The Forsotten Two-Thirth.: An Hispanic Perspective on Apprenticeship, Elttopeati Style

50 + Given less-than-equal opportunity assured the delegation that the parents and within an apprenticeship system, such student have the final decision about whether that they are seriously underrepresented a student is tracked into a gymnasium, an in apprenticesl4s providing prepara- academic high school providing university tion for occupations offering the best pi eparat ion, or into ha uptschuleor rea Isch pay and greatest mobility, due to poor in preparation for an apprenticeship. How- preparation in elementary and second- ever, the delegation was unable to obtain ary school, biased testing, inappropriate studies showing what happens to lower-in- or inadequate counseling, or employer come or immigrant/minority students, the unwil lingness to "hire" minority appren- impact of vocational guidance on career tices; or choice, etc. + Denied access to an apprenticeship sys- While career counseling efforts seem to be tem because it lacks alternative entry quite sophisticated, it was not clear how in- points for school dropouts, those with tensive the process is in assuring that stu- special needs (such as the limited-En- dents' career choices reflect both their inter- glish-proficient), or simply youth who ests and their skills and talents, and how well are not prepared to make career deci- it protects students from being pushed into sions at the expected age and thereby careers which have apprenticeship openings left without the opportunity for the train- or which seem appropriate to the counselors. ing required for skilled employment. Within the apprenticeship system, there are In Germany, students fulfill their require- differences in the relative status of different ment for full-time schooling by age 15 or 16 careers butchers and bakers versus bankers when they complete nine or ten years of schooling, and either move into an apprenticeship or into an academic program provid- " In Germany, students go either to university or ing university preparation, However, the decision about whether to go to university or to apprenticeships. Second-chance programs into an apprenticeship program is made rears provide other types of access into apprenticeships, before, when they move from elementary f'srving as a safety net for those with special needs. school (grundsch ole) at about age ten into one It is extremely important that the United States of the three types of upper schools recognize the critical importance of alternative ha uptschule, realschule, or gymnasium, The points of entry into any school-to-work transition Danish system is more flexible, with the uni- program adopted. Without such provisions, the versity option more available, regardless of options will be unacceptable: university, the type of secondary school attended. Most apprenticeship, or the street. " Germans seem comfortable with a process Mary Elise DeGonia which divides the entire young population into relatively narrow paths. German officials

Nal? The Forgotten filf: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 37 young adults; there is no recognized need for " German culture rests on a programs to reach older adults who did not preference for structure and receive apprenticeship training or to serve organization. American culture new immigrants.In the United States, this tends to emphasize the value of could mean that many Hispanics m ight be flexibility. " "tracked" out of the system entirely. Dr. Fred Romero Transportability

No matter how effective and successful a European apprenticeship system isin Eu- rope, its value for the United States depends and insurance experts, for example.In the the extent to which it or key components of United States, studies have shown that His- it can be "transported" to the very different panics often receive less career information environment of the U.S. than other students, and that counselors some- The European apprenticeship systems re- times steer them away from college, or into flect hundreds of years of history. They grew less skilled vocational training due to ethnic out of the medieval guild system.Whilethe stereotypes or negative attitudes. In the coun- current system includes more academ ic prepa- tries visited, there are no systems to protect ration, it reflects a natural progression from against these problems, or to prevent employ- apprenticeship programs in the skilled trades ers from excluding minorities or "masters" which have existed for centuries. The pro- from treating them inequitably. grams are still evolving; at the time of the trip, The German system is relatively inflex- Denmark had recently completed a major re- ible; to move from an apprenticeship track to form of its system, and Sweden was about to gymnasium might require several extra years of schooling, since the nature of the classwork is quite different. To change careers in mid " The European apprenticeship apprenticeship typically requires starting model evolved historically from again from the beginning; it can be done, but medieval times through the requires a significant loss of time.In Den- guilds; and unions play mark, the system is more flexible both verti- significant roles....Unions and cally and horizontally. industry in our country don't The delegation saw a number of alterna- have that historical relationship. tive programs designed to serve dropouts and Ours is more adversarial. " other students with special needs. However, the apprenticeship systems in the countries Roger CAzares visited focus heavily upon serving youth and

38 NCI.RThe l'orsotten IX Two-Third:, An I lispanic Perspective on Am), en ticeship. Litt opeint Style

5 `I begin significant reorganization. Moreover, 66 It is clear that the European 'dual system' the cultural values undergirding the formal apprenticeship model is much more advanced and structures and informal arrangements in the more inclusive than anything we have in theU.S. at three countries visited caution against an as- this time. But it is yet to be determined how sumption that their practices are entirely ap- appropriate this system is for the U.S. and how propr'ate in or easily transferable to the very different culture of the U.S. much we may want to borrow to improve our Any education and training system own system. "1 adopted in the United States must reflect and Richard Farias build on this country's unique strengths, history, and culture. The U.S. is a multi-racial, multi-ethnic society with a strong emphasis on d iversity, individualism, decentralization, and flexibility. The closely structured system + Late school entry. Chi ldren in the coun- with a strong federal role which is effective in tries visited often don't start school be- Germany could not be successfully replicated fore the age of six or seven; this is espe- here, if only because of the far greater size and cially true in Germany, where women significant decentralization of the U.S. The are far less likely than American women Danish and Swedish systems are based on to be in the workforce. The delegation very different social welfare systems, and far found that most kindergartens in Ger- more homogeneous societies. There are sonic many are run by Christian religious en- very specific aspects of the European educa- tities, and few opportunities are avail- U.S. pro- tion and apprenticeship system which the able for Moslem children. grams like Head Start serve children at U.S. probably does not want to emulate. For three and four years of ago, before they example: enter public school, and also provide services to their families; they provide a valuable opportunity for increasing 66 There is no 'silver bullet' that school read iness, especially for children will solve all our school-to-work from low-income families.They are transition problems. We can often more educationally focused than learn a great deal from the European day care programs. Moreover, European experience, but we kindergarten is free and almost universal in the United States. must create a system that is both comprehensive and uniquely Limited compulsory schooling. NCLR American. " does not believe that the U.S. should adopt a system which has an educa- Emily Gantz McKay tional "stopping point" after as little as

NCLR The Forsoth'n Two-Thirds: An Hispanic Pei spective on Apprenticeship, European Style 39

5 9 nine years of full-time schooling, cer- depends almost entirely upon employers to tainly not until there is a seamless tran- determine the content and delivery of train- sition to combined academic/vocational ing.Moreover, in a recessionary economy, training following that period of basic employers have not provided the expected education. NCLR considers it essential number of training slots. Researcher Margaret that youth apprenticeship provide a high Vickers stresses that the British experience school diploma or more advanced cer- should set offwarnings for the U.S. because of tificate or diploma, preferably at least a certain similarities to the American system. one-year certificate from a community Among them are a general lack of national college or equivalent. occupational or certification standards and a Early forced choice between academic generally deregulated industrial system, a and vocational preparation. NCLR does history of labor-management strife and dis- not support a system which requires a trust rather than cooperation, and a lack of child of ten to choose between three existing "masters" in the workplace with both di fferent types of secondary schools, only the technical and pedagogical skills to serve one of which provides clear preparation as mentors for apprentices. for university entrance. Any system adopted in the United States Other countries have tried to "borrow" must fully involve the independent sector. components of the European apprenticeship No data were found in the countries visited to system, with disappointing results. The Brit- assess the level of participation or results of ish experience suggests the dangers of trying the programs run by nonprofit organizations. to import parts of someone else's youth train- It is clear, however, that community-based ing system without considering the underly- nonprofit organizations play a critical role in ing social and economic system on which it is employment and training in this country, and based. Former German Marshall Fund fel- have a special capacity to reach and serve lows identified significant weaknesses in the minorities and the disadvantaged. Program British system, which year 1990 terminee data from JTPA's Job Train- seems largely depen- ing Quarterly Survey illusteate this point. dent upon industry, Nonprofit organizations served 22% of the " We have looked at a system rather than operating as classroom training terminees in 1990, provid- that works. But let's take a lc ok at a partnership with edu- ing basic education and occupational skill why that system works and what cation, labor, and other training. Nonprofits were much more likely we have to change or add or major groups. Most ap- to serve minorities than public vocational/ modify here in this country to prentices do not receive high schools, comrnunity colleges, or for-profit schools the other three major providers of make it work for all people. a combinationof school- and work-based classroom training; 60% of program year 1990 Mary Gonzalez Koenig preparation; many re- terminees receiving classroom training in ceive no school-based nonprofit organizations were minority group education. The system members. Nonprofit organizations providing

40 NCLR The Forgotten IX Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style classroom training also served a higher pro- All members of the delegation agree that it portion of dropouts, limited-English-profi- is unrealistic for the United States to expect cient persons, offenders, persons with read- to copy the European system of employment ing skills below the seventh grade level, and and training. However, certain key elements homeless persons than the other three major and approaches appear adaptable and adopt- providers of classroom training. JTPA targets able. There is a need to build on existing U.S. the disadvantaged and school dropouts; 43% structures and capacities, from community of terminees served by nonprofit organiza- colleges to community-based organizations. tions were school dropouts, compared to 25% There is also a need to consider significant of for-profit school, 29% of community col- changes in .some of those systems, such as lege, and 30% of vocational/high school current high schools, to fit the requirements terminees. Moreover, although nonprofit or- of a true integrated school- and workplace- ganization term inees had a relatively low me- based system. Most important, "transport- dian length of stay (21 weeks, compared to 30 ability" must be assessed in the context of not weeks for public vocational/high schools), just the apprenticeship system, but also the they had the highest percentage of terminees underlying social supports and structures. who attained employability enhancements 53%, compared to 40% for public vocational/ high school, 39% for for-profit school, and

27% for community college terminees. Non- 66The European apprenticeship profit organizations were also second to for- models provide the United profit schools in the percentage of terminees States new options in immediately entering employment. maximizing the enormous dollar Many of the "new" ideas embodied in outlay for education and train- European apprenticeship programs have in ing to produce more competent fact been tried in the United States, on a and confident labor force demonstration basis or at the state or local level.For example, Denmark has an participants. We must invest employer's tax to pay for youth training wages. wisely up front to minimize Some years ago, California created a Califor- human potential losses and the nia Employment Panel which taxed employ- need for second-chance ers through unemployment insurance and programs. " collected $55 million per year for worker Dr. Douglas Patirio training. However, the results of these efforts are often poorly documented and disseminated.

NCI RThe Forgotten Hi* Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 41 Resources and Options

A U.S. apprenticeship system is most likely emphasized its tendency to "cream" (serving to emerge out of a combination of new initia- those who are easiest to place in jobs rather tives and existing vocational education and than those with the greatest needs), its limited employment programs and resources. Some capacity to reach and serve school dropouts of the most important ones are summarized and youth, and its emphasis on placing par- below. ticipants in jobs as fast as possible usually low-paying positions with minimal mobility Current Programs and rather than providing in-depth education and skills training which would increase long- Resources term employability and create a qualified workforce. Across the country, many indi- Job Training Partnership Act vidual projects have effectively recruited, trained, and placed Hispanic youth, drop- The Job Training Partnership Act remains outs, women, farmworkers, limited-English- the nation's major publicly-funded training proficient persons, and other target popula- progyam for unemployed and disadvantaged tions. But the overall system has underserved youth and adults. With the beginning o a and toe often poorly served these groups. new Administration in Washington, D.C., its More than fourqears ago, NCLR issued a future is unclear. Restructuring of employ- report that documented major problems with ment and training systems can be expected, JTPA and its inadequate services to Hispanics but the role of JTPA within a revised system and women. has yet to be determined. After four and a half years of debate, JTPA Since JTPA's inception, NCLR has moni- has been substantially reformed by Congress. tored the program and its local implementa- The revised JTPA will now have a separate tion, focusing on Title II-A programs, and has youth employment program (Title II-C), tar- geting disadvantaged youth aged 16-21.In addition, JTPA will require more focus on the "hard to serve." Programs should be more long-term and focus on improving basic skills 66The JTPA system was put together to get people off welfare; it was not put together to create a as well as vocational skills. qualified workforce.It's a second chance program of JTPA may also better target the 8% Educa- band-aid remedial work; its success is measured by tion Coordination set-aside, requiring that how many people got off welfare. We have to make these funds be used only to coordinate and involve state programs for (1) school-to-work long-term training accessible and affordable. s transition (including recovery of high school Mary Gonzale.z Koenig dropouts), and (2) adult literacy and non- traditional training programs for women and minorities. This means that JTPA now holds

42 NCLRThe Forgotten IA: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style _ promise for su pporting demonstration appren- " Ifthe U.S. cannot consolidate ticeship-type programs. K-1 2 into K-10, to allow for two However, resources remain extremely lim- additional years of worksite In program year 1991, JTPA enrolled ited. training with a job-related about 654,000 people through the block grants to the states through Title II-A and the Title III academic component, then we displaced worker programs; only about 3% of have no choice but to extend to eligible displaced workers received services. K-14, to assure that our youth In Fiscal Year 1993, JTPA has a total appro- are occupationally skilled for priation of S4.1 billion (excluding President the workforce. 1" Clinton's proposed additional $1 billion for Dr. Douglas Patiflo summer youth programs), including $1.7bil- lion for adult and youth services, $966 million for Job Corps, $670 million for the summer youth program, $566 million for displaced workers, and the rest for migrant and seasonal farmworkers, Native Americans, vet- nizations to provide "pre-vocational" and ba- erans, and other national programs. sic skills to prepare minority and disadvantaged students and dropouts for vocational Vocational and Technical Education training, and to develop partnerships with community collegesand other vocational ed u- Most vocational training is primarily cation providers.The program as imple- paid for by state and local governments; they mented varies greatly by state in target popu- spend an estimated $11 billion a year, com- lations and approaches. pared to $1 billion in federal spending. To help increase minority participation in Amounts vary greatly by state. high quality vocational/technical education, Federal vocational and technical educa- the State Directors of Vocational Education tion (the Carl Perkins Vocational and Techni- have established a partnership project with cal Education Act) was reformed more than community-based organizations; NCLR is a two years ago, but final regulations took two part of this partnership and several of its years to complete. It includes a new focus on affiliates are participating. For example, the basic grants targeted at improving services to Idaho Migrant Council works closely with the the disadvantaged, persons with limited En- Idaho Department of Education in a multi- glish proficiency, and persons with disabili- year effort to increase Hispanic participation ties.A small pot of money (S12 million, in vocational education programs. NCLR af- spread over all the states) is reserved for a filiates in Arizona also participate in partner- partnership between community-based orga- ship efforts.Similar partnerships, funded nizations and vocational education.This through state vocational education agencies, funding has enabled community-based orga- -- NCLR The Forgotten Hic Two-Thirds: An Hispanic Perspective on Apprenticeship, EuropeanStyle 43 are operating with NCLR affiliate involve- volunteer for a minimum number of hours. ment in other states, including Cali fornia and Through state and federal Youth Corps pro- Pennsylvania. grams, youth work on a variety of tasks in- Also included in the Vocational Er.aition cluding conse:vation. Both approaches pro- Act is the "Tech Prep" program, al: :ailed vide work experience to students, andare "Two Plus Two." It includes several riojects designed to ease the transition from school to which are the result of education reform ini- work. A major new National Youth Service tiatives developed initiative has been proposed by President and percolated up CI inton. " Not to invest successfully from the local and in youth is not to invest in state level. Funding Tax Policy our future. " for such efforts is in- Throughout Europe, tax policy is used to Dr. Douglas Patin() creasing. Participants fmance the apprenticeship system, although in the program spend few local practitioners can fully explain the the last two years of tax and financing side of the system. In the high school in a spe- United States, there are no mandatory taxes cial vocational/tech- for training, but a variety of tax incentives nical training program, then attend twoyears exist to encourage training and education of of college. The school experience coordinates employees. For example. the Targeted Jobs high school and college, usually community Tax Credit, which has expired legislatively college.Students completing the program but is expected to be re-established with the have four years of training by about age 20. support of the Clinton Administration, pro- The program has not yet been operational vides employers tax credits of up to $3,000 to long enough to generate long-term outcome cover first-year costs related to hiring mem- data. bers of 12 specified target groups. Similarly, The Vocational Education Act as amended employer deductions for employee training reflects a growing recognition of the need to costs encourage employers to pay for worker avoid narrow training in a time of rapid tech- education as a cost of doing business. nological change.It now requires that program participants be exposed to "all aspects State and Local Apprenticeship of the industry," not just a single occupation. Initiatives

National Youth Service/Youth Corps European-style apprenticeship models are being tested in many states and localities, in National Youth Service Corps/Youth Corps varying ways and at differing levels of effort. also developed at the local and state level and There has been a flurry of activity in creating then was adopted through federal legislation. both small-scale and statewide school-to- Through Youth Service, students, both sec- work/apprenticeship programs which reflect ondary and post-secondary, are required to many components of the European systems.

44 NCLIZThe Fingotten Two-Thuds: An Ph:Tank Perspectny on Amen ticeship. European Style California, Iowa, Maine, Michigan, Oregon, scaling back planned apprenticeship efforts and Wisconsin are developing apprentice- due to state budget deficits, and many of the ship models through planninggrants from the current demonstrations are extremely limited U.S. Department of Labor.Oregon has an in scope and size. They often involve only a ambitious program which calls for full very few occupations and a very small num- implementation of the America's Choice rec- ber of students. Moreover, participants are ommendations; the Maine program will begin often carefully chosen; many have high grade- in the 11th grade and end with a one-year point averages, and might be expected to certificate from a Maine technical college. attend college ra.ner than enter a youth ap- The Association of Chief State School Offic- prenticeship program. The programs typi- ers (ACSSO) is p rovid ing technical assistance cally include a strong school-industry part- to five states which have apprenticeship pro- nership,but union, community-based organi- gram implementation grants:California, zation, and parent/community participation Maine, Minnesota, West Virginia, and Wis- varies. consin.In addition, ACSSO received Ford Many U.S. efforts build upon existing en- Foundation funding for helping states im- tities and expertise, such as those of commu- prove school-to-work linkages for at-risk nity college systems; a very few have a strong youth, and in late 1992 held a conference for minority focus, and even fewer serve Latinos. interagency teams from Arizona, Arkansas, Boston's Project ProTech provides a health- Maryland, New Mexico, Ohio, Utah, Wash- focused program linking three Boston high ington, West Virginia, Wisconsin, and the schools, six hospitals, and a local community District of Columbia, The National Governor's college.A partnership between Socorro Association and the Council of Great Lakes School District and El Paso Community Col- Governors are involved in demonstrations in lege in Texas combines a vocational magnet several states. Jobs for the Future is working school in health with preparation for study in to expand and assist apprenticeship-type pro- a technical field (Tech Prep). Southwestern grams, and in partnership with the Manpower Community College in San Diego hopes to Demonstration Research Corporation is con- create a Tech Prep program to give Hispanic ducting a qualitative assessment of promising school-to-work transition programs. There are significant limitations to many " It is time to stop talkinci about reforming of these demonstration efforts. While they education and agree on integrated educational are typically testingcertain innovative school- and vocational standards with clear outcomes for to-work transition approaches, the models K-12, with shared responsibility by education, often lack many of the major components of business/industry, and the not-for-pro:it sector. 9' European systems. Moreover, the recession and limited finances have their impact on Dr. Douglas Patin() state-level demonstrations; some states are

NCLR The Forgotten IX Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 45

59 elementary school-age children early expo- aimed at developing occupational skills stan- sure to the field of engineering. The project dards; total funding is about S5 million and will work closely with industry and with San has gone primarily to industry-related groups. Diego State University, as well as the college's The first standards may be completed in about Technical and Professional Advisory Corn- three years; how they will be disseminated, mittee and the Society of Hispanic Profes- adopted, used, and updated is not yet clear, in sional Engineers. the absence of any federal partnership including unions, the private sector, public and Proposals and Future Policy private vocational schools, and community- based organizations which provide ski I I train- Future national policies and !esources for ing. apprenticeships depend to a considerable extent upon the priorities of the new Admin- Apprenticeship Systems and istration. President Clinton has consistently Demonstrations expressed support for a youth apprenticeship A growing number of local and state ap- system, and new legislation is expected in prenticeship demonstrations are now under 1993. Program scope and scale will presum- way, and President Clinton is committed to ably be limited by resource availabi I itv. expanding such efforts. The Administration's Skill Standards Fiscal Year 1994 budget request calls for $250 million for apprenticeship demonstrations, There appears to be broad consensus that and proposed legislation on apprenticeships the United States should work towards skill is expected soon. standards for at least some types of jobs. Many apprenticeship proposals were in- Major reports such as Job Training 2000 and troduced in the 102nd Congress, including America's Choice have called for develop- legislation based on major studies and the ment of national skill standards. After several work of national commissions. In 1990, the years of work, SCANS (the Secretary's Com- Commission on the Skills of the American mission on Achieving Necessary Skills) has 1Vorkforce, an initiative of the National Cen- developed a series of skills that all youth ter for Education and the Economy, put forth should have before they graduate from high a bold proposal, America's Choice, which school. President Clinton is expected to call called for massive private-sector retraining, a for legislation to establish a National Skills national apprenticeship system, National Standards Board which may replace the Youth Service, and the expansion of Swed- SCANS initiative.The next phase in the ish-style youth centers as alternatives for all development of standards is that of occupa- youth aged 16-21 who have not completed tional skills; both the Department of Educa- high school or lack some form of "certificate tion and the Department of Labor are inde- of mastery." Hillary Rodham Clinton was a pendently funding major research projects member of the Commission.

46 NC1.12 The Forgotten FArf: Two-Thnds: Au Hispank Perspectir'e on Apprenticeship, Eunrpean Style

Cu Conclusions

The NCLR consultation had a profound effect on its participants. Prior to the NCLR " The apprenticeship system works in Europe trip, many of the consultation participants had serious reservations about using the Eu- because there is a real commitment to be the best ropean apprenticeship system as a model for and most competitive workforce in the world a revised school-to-work transition system in it is not what they say; it is what they do. 9, the United States.While many concerns Mary Gonzalez Koenig remain, consultation participants were extremely impressed by many aspects of the European system. The NCLR delegation "buys into" many of the underlying values c .d concepts of the education and training system as tional responsibility, shared by business, la- structured in Germany, Denmark, and Swe- bor, the education system, parents, youth, den. Participants agree that U.S. policies and and voluntary organizations where they exist. practices guiding preparation of youth for While it appears that the European model as jobs need major restructuring, and while transplanted to the United Kingdom does not the American solution must reflect our nation's reflect this partnership, the German, Danish, unique history, multiculturalism, and insti- and Swed ish models clearly do, and employ- tutional systemsmuch can be learned from ers are a critical element in the transition of the European experience. youth from school to work. NCLR participants were most impressed The delegation considers the following by the solid commitment of these countries to differences between the European and Ameri- individual human resource development can education and training systems espe- the shared belief that people represent the cially important: nation's most critical "natural resource," and Underlying the European system of pre- that preparing skilled workers is a joint na- paring young people for the world of work are certain shared societal values, such as a strongly held belief in human " We need to recognize that resource development, prestige and earn- our high school students have ing capacity for the skilled occupations, the maturity to learn an a commitment to a skilled workforce occupation in the worksite. We which transcends the current economic expect too little from our youth; situation, and a belief that everyone can and will learn. The U.S. lacks this high therefore they meet our low level of respect for the occupations for expectations. 99 which apprenticeship programs provide Dr. Douglas Patiño training, and there is a widely held though perhaps not majority-held bel ief

NCLRThe Forgotten HX: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 47

61 that some low-income and minority vocational ski Ils, based on riational qual- youth have limited capacity to learn and ity standards which define and describe to perform. skilled occupations and the competen- The European education and training cies associated with them. This pro- systems reflect a strategic national in- vided a great contrast to U.S. education dustrial policy, and a clear legislative and training efforts, which are not a single system, but rather a collection of often disjointed, short-term educational 46 The Eun,pean countries we visited have a experiences or unrelated programs. cradle-to-grave system of social and educational The education and training system in supports. This is substantially different from the the countries visited reflects a recogni- United States, which has a laissez-faire educational tion of the need for lifelong learning, and social service system. with opportunities for increasing, broadening, and upgrading skills at various Mary Elise DeGonia stages in the individual's working life. There is a growing emphasis on developing skills relevant to a family of occupations rathei than one single job, as a means of developing a workforce adapt- base and taxing structure which sup- able to economic and technological port holistic education and training sys- changes. Preparation is long-term; ob- tems built on a solid social support taining the equivalent of a skilled system. The structure reflects genuine, worker's or "journeyman's" certificate ongoing, institutionalized collaboration typically takes throe to four years of among the key stakeholders in employ- combined education and training. In the ment and training government, busi- U.S., a high proportion of workers and ness and industry, unions. families, and youth are not predisposed to returning the not-for-profit sector from the na- to "school" periodically to u pgrade their tional to the local level. Theoretical and skills. practical learning are fully integrated; Apprenticeships in Europe are finan- education and training entities work not cially affordable and therefore acces- as separate systems but as partners. sible for nearly all youth. The countries Education and training institutions have provide meaningful training wages, so access to the newest technology. A rela- even youth from poor families can re- tively "seamless" system with low drop- main in long-term training instead of out rates provides multiple chances for only those who can afford to be without attaining success and several clearly de- wages for several years.In the U.S., fined but different paths for achieving

48 NCLR The Forgotten I Arf: Two-Thuds: An Hispanic Perspective ml Apprenticeship, European Style there is no similar system of training expected to work in the U.S. unless this coun- wages, so low-income youth often can- try also adopts some European values. not afford long-term training. NCLR is concerned that some of the Euro- Strong value is placed on multilingual pean-based school-to-work proposals now capacity for global competitiveness. In being considered and demonstrations now contrast, many Americans distrust bi- being undertaken in the United States ignore lingualism, and only a small minority of the importance of the underlying infrastruc- U.S. youth learn fluency in a second ture, values, and components of the Euro- language. pean systems. Many of these proposals and The Europeans have far less experience program designs appear to reflect a narrow, with racial and ethnic minorities than one-sector focus, or at best fai I to include the U.S., and minorities there do not some essential components. enjoy equal opportunities, particularly The delegation recognizes the critical need in employment. There is a lack of equal for an education and training system which employment opportunity laws, and ex- is able to meet the needs of all students. The isting ones generally lack enforcement. delegation's unique emphasis was on how the Similarly, there are few protections to various systems and programs serve "non- assure equal access for women, espe- typical" students, from language and ethnic cially in non-traditional occupations. minorities to women, the handicapped, and The delegation is absolutely convinced older trainees. The delegation believes that a that successful adoption and adaptation of system which can effectively serve a diverse components of the European system requires population will best serve the needs of His- first of all that the U.S. commit itself to the panics as well. system's underlying values and concepts There is a real danger that the current particularly the partnership between govern- enthusiasm over European apprenticeship ment, business and industry, unions, fami- systems will discourage candid assessments lies, and the not-for-profit sector as stakehold- of their weaknesses as well as their strengths. ers and the unswerving commitment to human resource development as reflected in long-term skill development. The delegation feels that the extent to which the European 66 'Ap prentices hi p American Style' cannot merely system can be adapted to meet U.S. needs include non-college-bound Hispanics and other remains a significant question, since not only minorities; it must focus specifically on meeting their the basic educational system, but also the needs. They are the groups most poorly served by social welfare system and role of government existing education and training programs. " and the private sector are fundamentally dif- Emily Gantz McKay ferent in those countries as are some very basic values.European systems cannot be

NCLR The Forgotten 1114. Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 49

63 The European models are not without their The delegation believes that systemic problems or detractors, but many recent re- changes in the U.S. education system are ports have given little attention to possible required from pre-school through college, for negative factors. The minority perspective as the benefit of all students, including the non- provided to the NCLR delegation is one criti- college-bound.An apprenticeship system cal component of this assessment process. imposed upon the current educational sys- During the trip, one senior German official tem will almost inevitably lead to lack of full was extremely candid in identifying both access and equity for low-income and minor- positive and negative aspects of the dual sys- ity students, since they are especially likely to tem. The NCLR delegation also was told that attend underfinanced inner-city or rural some American employers in Germany, while schools which provide poor academic prepa- participating in the dual system, reported that ration. An apprenticeship system which ig- their high training costs were difficult to ex- nores this differential preparation will in ef- plain to their U.S. headquarters. An article in fect penalize students for the inadequacy of The European (March 26, 1992) reported that the schools they must attend. Schools must some German industrial giants, including be held accountable, and the quality of U.S. BMW, BASF, and Bosch, are leading an exo- elementary and secondary schools must be dus out of the country, decreasing domestic improved at the same time that an apprentice- employment and increasing overseas invest- ship system is being developed. ment. Reasons given included rising wages Development of a new school-to-work tran- and high corporate taxes. Other analyses of sition system must be an integral part of com- the European systems are needed; most help- prehensive education reform. At the same ful are analyses conducted by neutral entities time, it is dangerous to demand a massive rather than major proponents of U.S. adop- overhaul of the system that goes nowhere due tion of a European-style system. to lack of resources or lack of will. Incremen- tal changes which test key concepts and approaches aro also valuable, provided they are based on a clear vision of the kinds of out- 64 When it comes to preparing young people comes which must ultimately be attained, for employment, you can pay now in high and reflect a commitment to institutionalize quality education and training for all or you approaches and systems which prove effec- can pay later in retraining, welfare, crime, tive. and wasted human resources. The countries Financing is a significant concern. In the we visited prefer to invest now rather than long run, implementation of an education and paying later. " training system building on the European Raül Yzaguirre model wi 1 I require a resource shi ft rather than a resource increase; in the short run, additional funds will be required. A major reform

- 50 NCLR The Forgotten II*: Two-Thirds: An Hispanic Perspective on ApprenticesWp, Cuwpean Style in the education and training system will The terminology used in describing school- require funds not only for demonstrations, to-work transition systems is itself problem- but also for planning, information sharing, atic. The terms "apprenticeship" and "voca- consensus building, and initial implementa- tional education" have long since become tion.If a school-to-work transition system "negatively loaded" in the United States. should become fully implemented, more fund- Hispanics are severely underrepresented in ing will be required up front, to finance edu- adult apprenticeships, and may distrust a cation and training which develops skilled system which seems to build on that very workers, but less money should be needed in imperfect one. The terms also connote spe- long-term social welfare costs, from retrain- cific, relatively limited aspects of a compre- ing to overcome skill deficits to welfare costs hensive education and training system. The and prison expenditures.This is truly a NCLR delegation recommends that new terms question of deciding to "pay now" rather than be agreed upon, such as "occupational skill "pay later." development" or "technical and commercial skill development," which reflect commitment to a redesigned system reflecting a new social compact.

NCLR The Forgotten Hx: Two-Thil ds: An Hispanic Perspective on Apprenhceship, European Style 51 Principles fok Assessing School-to-Work Proposals

The National Council of La Raza believes rou tes for entering and progressing that an American apprenticeship system can through the system, including "second be successful if and only if it reflects and chance" entry points for d ropouts. There builds on certain basic principles. Some of is a need to include services for adults these principles have been identified by many and linkages to the current adult appren- other observers and experts; others have been ticeship system, as well as to the 60 or so largely ignored or overlooked. NCLR pro- federal programs providing some aspect poses the following principles against which of vocational training. to assess proposed policies and programs re- 3. Partnership: Youth apprenticeship lated to youth apprenticeship: requires a genuine and ongoing part- 1. School-Workplace Integration: nership among sectors and groups, not Youth apprenticeship must establish a domination by one sector; it must in- combined academic and workplace sys- clude government, business, unions, tem with a strong focus on education for education, nonprofit organizations, stu- employment, and broad occupational dents, and their parents and families, coverage.It should be part of an inte- Many observers correctly emphasize the grated and improved K-14 (not merely critical role of business, but fail to recog- K-12) education and training system, nize the equally key roles of othergroups. buildingon existing community colleges. Years of competition, distrust, or exclu- with worksite learning as part of the sion will have to be overcome, roles re- curriculum. The system must recognize examined, and stakeholders educated the key role of a "master" or mentor, and and "bought in."Moreover, private- assure that experienced rand iv id uals are sector involvement must include exten- appropriately prepared to undertake this sive involvement of small businesses. role. 4. Independent Sector: The nonprofit 2. Seamless System: The apprentice- sector and especially community-based ship system must be both seamless and organizations must be full partners in flexible, designed to meet the needs of an American apprenticeship system. all students. The system must be able to This group has been largely ignored by successfully bring in, motivate, and train many U.S. proponents of apprentice- culturally, economically, and education- ship programs. Voluntary organizations, ally diverse student populations. It must especially those with a strong commu- retain for all students the option of uni- nity base, are essential to reach, moti- versity attendance. The European sys- vate, and help serve diverse popula- tem focuses almost exclusively on youth tions, including special-needs groups or recent dropouts, not on adults, except such as minorities, dropouts, and perfor retraining and advanced training; an sons with disabi lities. Even in Europe, American system must offer alternative where the voluntary sector is far less

52 NCL.RThe' Forgotten I Xt: Two-Thirds: An Hispanic Perspectitv on Apprenticeship,Ianopeon style

CC developed than in the United States, seling, and exploration from an early nonprofit organizations play a key role age. This is important for all students. in the education and training system, mt critical for those whose parents have particularly the alternative paths to oc- limited education or had limited career cupational skills which appear most ef- alternatives themselves because of pov- fective with non-typical students. Their erty or discrimination. The U.S. must role will be even more critical here. create a new structure for vocational Moreover, minority-focused nonprofit guidance centers, with new technology organizations will be important in gen- and high quality career and labor market erating public support for the significant information. These centers should be changes in the education and training staffed by people well versed in provid- system which will be required to initiate ing/interpreting labor market informa- a youth apprenticeship program of any tion, education and skill requirements magnitude in the United States. Some for various occupations, career counsel- current youth apprenticeship demon- ing related to occupations and required stration funding does not even recognize skills, job search skills, and worksite community-based nonprofit organiza- learning. Part of elementary education tions as el igible entities; this must change. must include gaining knowledge of vo- 5. Literacy and Numeracy: Youth cational choices. There should be such apprenticeship requires that every stu- a center in every community, with auto- dent receive a strong basic education. mation assuring sharing of information High quality primary and basic educa- across communities. tion provide a necessary theoretical foun- 7. Tracking and Discrimination: dation of knowledge on which practical Youth apprenticeship represents a posi- applications can be bu ilt.Substantial tive alternative for Hispanic and other improvements in general education are minority students only if it includes essential so that all students can take strong, pro-active protections against advantage of the many options a trans- "tracking," discrimination, and exploi- formed school-to-work transition sys- tation of apprentices as cheap labor. tem will provide. Students seeking to Any system adopted in the United States enter apprenticeships must not be pe- must address the needs of America's nalized by poor academic preparation diverse population. A system which due to underfinanced, ineffective can effectively serve a diverse popula- schools. tion will best serve the need s of Hispan- 6. Vocational Choice: Students and ics as well.There must be specific their families can make appropriate ap- provisions and procedures to prevent prenticeship choices only if they re- discrimination as to who enrolls in ap- ceive effective career information, com- prenticeships and who gets hired at the end, and careful documentation and

NCLR The Forgotten Hig: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 53 analysis to determine ethnic and racial mance-based examinations conducted minority participalon in apprentice- jointly by employers and educators ships related to specific occupations, to would attach more value and recogni- prevent minority concentration in the tion to a person's qualifications than "mud" occupations. Skill training needs current practices. However, these as- to assure exposure to families of occu- sessments must emphasize actual per- pations rather than narrowly defined formance e.g., finding and fixing the jobs.Also important are careful em- problem on a mechanized assembly line ployer agreements which prevent em- and avoid the biases and inequities ployers from taking advantage of ap- common in standardized paper-and- prentices as low-wage workers or as- pencil tests.Traditionally, standard- signingthem keep-busy tasks ratherthan ized assessment systems have not taken meaningful work. into account cultural differences. Pro- 8. Standards and Assessment: A visions against cultural bias and dispar- national apprenticeship system re- ate impact must be included in guide- quires both national skills standards lines for standardized assessments, and and competency-based assessmer.: of experts in the evaluation of limited- skill attainment during and at the end Engl ish-p roficient youth must be consulted of the apprenticeship. A set of widely in the development of all assessments. accepted yet flexible standards are 9. Financing: Funding must be signifi- needed for a wide variety of occupa- cant, expenses must be shared, and tions, as a basis for skill development costs must be determined recognizing leading to certification which will be that the "pay now save later" prin- transferable across cities and states. Ap- ciple applies. Government, industry, p rent i cosh i ps must be available for a and families should share human capi- wide range of occupations, not just the tal investment costs. Resources must be building and metalworking trades, and sufficient to provide a living wage dur- skill standards will be needed eventu- ing apprenticeships; a training wage is ally for the full range of covered occupa- not necessarily a subminimum wage. tions.Some occupations lend them- 10. Values: To build on the best of the selves particularly well to skill stan- European system, the United States dards:the health occupations, com- must adopt not only its approaches, but puter technology, and the building also its most critical underlying values trades could offer useful models for the and philosophy. This includes an over- joint participation of unions, employ- riding commitment to human resource ers, and government in the develop- development, a genuine belief that all ment and adoption of standards. If the students can learn, and widespread pub- system has certification, it must also lic respect for skilled occupations not have evaluation of competency. Perfor- requiring university graduation,

54 NCLR The Forgotten .96 Two-Thirds. An Hispanic Perspective int Apprenticeship, Eunpean Style

68 Looking Ahead

The members of the NCLR delegation believe that it is long past time for a major "To begin to develop an American youth restructuring of the American system of edu- apprenticeship system, we need to introduce cation and training restructuring that re- a common model to test on a well organized flects the principles listed above, assures mul- and centrally structured basis, possibly through tiple avenues from school to productive, the Department of Education. We also need skilled work for every U.S. resident, and al- to strengthen school-to-work transition models that lows youth to pursue the education and train- are currently in place. For example, Montgomery ing alternatives most appropriate for them. County, Maryland, has strong community Given the very long distance to be traveled in college/labor union programs which we should reaching such a system, NCLR believes that bring into the high schools. To have a meaningful an incremental approach is essential. Values test of these models, we must open up and beliefs must be re-examined, and alterna- demonstration programs to youth from varied tive models and approaches developed, tested, refined, and institutionalized. Careful pre- backgrounds, instead of creaming. 19 planning and testing are essential to avoid the -- Ana Sol Gutierrez kind of inappropriate borrowing of aspects of the European apprenticeship system which vir occurred in Britain. NCLR supports youth apprenticeship demonstrations. However, we believe that these Operate in locations most likely to in- demonstrations need to be much closer to real clude large numbers of non-university- life if they are to provide any meaningful test bound youth such as inner cities and of a model suitable for widescale implemen- rural areas. tation.At a minimum, emphasis must be Involve entities most likely to reach and placed on demonstrations which: serve non-university-bound youth in- Invol ve not just educational institutions ner-city high schools and community- and private industry, but also genuine based organizations. broad-based partnerships including com- Deliberately and equitably include and mu nity-based organizations, organized serve youth with varying academic labor, and parents and family members records and motivation a cross-sec- of the youth to be served. tion of high school youth including at- Test out the youth apprenticeship ap- risk youth. not the carefully selected proach in occupations which have not "cream" of their classes. formerly been "apprenticeable- in the Fully involve Hispanics, othor rninori- United States. ties, and women in the whole range of occupations.

NCLR The Forgotten Hix: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 55

6 9 Provide alternate paths to skill develop- munity leaders, experts, and public in- ment, such as second-chance programs terest groups, so that they are a part of the for dropouts, and therefore serve young development process. adults as well as youth. Hispanics and other minorities are al- Test not only integrated school and work- ready one-quarter of the population, and will place training, but also other aspects of soon be well over one-fourth of the workforce. the school-to-work transition system, A youth apprenticeship system cannot suc- such as career counseling and informa- ceed unless it effectively reaches and serves tion models and short-term career ex- these young people. NCLR is prepared to join ploration. with other groups to help attain a critical mass Avoid high-stakes use of standardized of support for action to adopt policy and assessments, especially paper-and-pen- programs at the national, state, and local lev- cil tests, at least until they have been els which will bring the bes practices of the shown to carry no bias or disparate im- European education and training systems to pact against minority and limited-En- the United States. The delegation believes glish-proficient youth. that such action can assure that every young Provide credentials which are accepted person in the United States regardless of race, ethnicity, gender, or special needshas by employers and are "portable" accepted throughout the country. the gen u ine opportuni ty to become a prod uc- tive, skilled member of society.The Test ways to overcome union concerns, delegation's members, individually and as a including possible negative effects of group, commit ourselves to working with our youth apprenticeships on adult workers own constituencies to adopt and test model and adult apprenticeship programs. projects reflecting what we have learned. Begin immediately to "invite in" the broadest possible cross-section of com-

46 The only way to assure an appropriate school-to-work transition system in the United States is by including and involving minority leaders and practitioners and minority community-based organizations as full partners in the planning and pilot testing of new approaches.If we are excluded now, the system will fail. Id that failure will imperil the economic health of the entire country in the 21st century. " RaUl Yzaguirre

56 NCLRThe Forgotten I jot: Two-Thirds: An I lispanic Perspective on Apprenticeship, Friropean Style

70 APPENDIX A: References

The NCLR delegation received extensive briefing materials before the trip, provided by CDS International and NCLR. The group also received a great deal of written information in Europe, including both published English-language materials and unpublished charts, tables, copies of overheads, and summaries. Statistics and verbal summaries were also provided from untranslated materials in German and Danish. Additional documents were reviewed during the preparation of this report. Following are the major documents used in preparing the report, includ ing published documents and other materials available from government or other sources. 4 Academy for Educational Development, National Institute for Work and Learning, TREE: Transition Reform for Education to Employment. Volume 1, Issue No. 2, Winter/Spring 1993. + Apling, Richard N., Youth Apprenticeships: Improving School-to-Work Transition for the "Forgotten Half." Washington, D.C:Congressional Research Service, The Library of Congress, December 14, 1992. + "Basic Structure of the Education System in the Federal Republic of Germany." Darmstadt: Secretariat of the Standing Conference of the Ministers of Education and Cultu ral Affairs of the Lander in the Federal Republic of Germany, 1990. + Byrne, Sandra, Caricia J. Fisher, Timothy Lum, Garrison Moore, and Tana Petrich, Real Jobs for Rea I People: An Employer's Guid e to Youth Apprenticeship. Wash ington,D.C.: National Alliance of Business, 1992. Designed to guide employers interested in establishing youth apprenticeship programs. + Commission on the Skills of the American kVorkforce, America's Choice: High Skills or Low Wages! Rochester, Now York: National Center on Education and the Economy, 1990. + Council of Europe, Standing Conference of Local and Regional Authorities of Europe, "Frankfurt Declaration: Towards a New Municipal Policy for Multicultural Integration in Europe," Internationale Conference Europe 1990-2000: Multiculturalism in the City The Integration of Immigrants, Frankfurt-on-Main, Germany. May 29-31, 1991.Strasbourg: Council of Europe, 1991.Conference organized by the Council of Europe Project on Community Relations and the Department of Multicultural Affairs of the City of Frankfurt- on-Main. + "Education and Training: 1Vhat the U.S. Can Learn from Europe," Education Reporter, Volume 24, No. 4, September-October 1990. + Education in Denmark, folder of English-language materials prepared by the Ministry of Education and Research, 1991.Available from the Ministry's International Relations Division, Copenhagen.

INICLR The Forgotten If Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style 57 + Gold, La wrence N., States and Communities on the Move: Policy Initiatives to Create a World-Class Workforce. Washington, D.C.: William T. Grant Foundation Commission on Work, Family and Citizenship, 1991. + Hamilton, Stephen F., Mary Agnes Hamilton, and Benjamin J. Wood, Creoting Apprentice- ship Opportunities for Youth, A Progress Report from the Youth Apprenticeship Demonstra- tion Project in Broome County, New York.Ithica, New York: Cornell University Media Services, September 1991. + Johnston, William B. and Arnold J. Packer, Workforce 2000: Work ond Workers for the 21st Century. Indianapolis, Indiana: Hudson Institute, June 1987. + "JTPA Program Highlights," Data from the Job Training Quarterly Survey. Volume 1, No. 2, October 1992. Program data from the Job Training Partnership Act, from the U.S. Departmen t of Labor, Employment and Training Administration, Office of Strategic Planning and Policy Development, Division of Performance Management and Evaluation. + "JTPA Program Highlights," Data from the Job Training Quarterly Survey, Volume 1, No. 3, January 1993. Program data from the Job Training Partnership Act, from the U.S.Department of Labor, Employment and Training Administration, Office of Strategic Planning and Policy Development, Division of Performance Management and Evaluation. + "JTPA Title IIA and III Enrollments and Terminations during Program Year 1991 (July 1991 - June 1992)," Job Training Quarterly Survey, February 1993. Programdata from the Job Training Partnership Act, from the U.S. Department of Labor, Employment and Training Administration, Office of Strategic Planning and Policy Development, Division of Perfor- mance Management and Evaluation. + "Lessons from Other Countries on Systems for Preparing Youth for Employment," Council of Chief State School Officers Seminar Series, Connecting School and Employment, December 3, 1991, Minutes. + National Youth Employment Coalition, Making Sense of Federal fob Training Policy. Washington, D.C.: National Youth Employment Coalition and William T. Grant Foundation Commission on Youth and America's Future, 1992. + Noll, Ingeborg, et al., "The Net Cost of Firm-Based Vocational Training in the Federal ,public of Germany," Summary of a survey report prepared for the Federal Commission on Youth and America's Future, 1992. Institute for Vocational Training. Original version, German, 1983; English translation, Berl in, 1983. Nothdurft, William E., SchoolWorks: Reinventing Public Schools to Create the Workforce of the Future, Innovations in Education and Job Tra ining from Sweden, West Germany, Greot Britain, France...and Philadelphia, A German Marshall Fund of the U.S. Book. Washington, D.C.: The Brookings Institution, 1989.

58 NICLR The loiotten 1Xj: Two-Thirds: An Hispanic Perspective on Apprenticeship, European Style Nothdurft, Will iam E., Youth Apprenticeship American Style: A Strategy for Expanding School and Career Opportunities, Report of a Conference held December 7,1990in Washington, D.C.Somerville, Massachusetts:Jobs for the Future, 1991.Includes an extensive bibliography on youth apprenticeship. "Numerical Barometer: Some Education Statistics,1990-91." Bonn: The Federal Ministry of Education and Science, December 1990. Trilingual statistical summary. + Office of Vocational and Adult Education, "What We Must Do to GetStudents Ready: Blueprint for a School-to-Work System," ED/OVAE92-13. Washington, D.C.: U.S.Depart- ment of Education, 1992. + Roditi, Hannah Finan, "Youth Apprenticeship: High Schools forDocile Workers," The Nation, March 16,1992. Schenkel, Peter, "West Germany's Dual Training System," VocationalEducation Journal, April 1988. Sen, Dr. Faruk, "The Position of Turkish Businessmen Living in the EuropeanCouncil." Essen: Center for Turkish Studies, 1991. + Sen, Dr. Faruk, Problems and Integration Constraints of TurkishMigrants in the Federal Republic of Germany. Wcrld Employment Programme Research Working Paper, Interna- tional Migration for Employment. Geneva: International Labour Office, November 1989. Shenon, Carol, Human Resources Development Institute, AFL-CIO, Union Perspectives on New Youth-Based Youth Apprenticeship Initiatives. Cambridge, Massachusetts:Jobs for the Future, January 1992. A report commissioned by Jobs for the Future, based oninterviews with a range of union officials. 4. Student Apprenticeship News. February and October 1992.Occasional newsletter published first by the William T. Grant Foundation and now by Jobs for the Future. + U.S. Department of Education, National Comm ission forExcellence in Education, A Nation at Risk: The Imperative for Education Reform. XV ash ington , D.C.:U.S. Government Printing Office, 1983. + U.S. Department of Labor, Bureau of Apprenticeship Training,"Race/Ethnic Report by Selected Occupational Groups, as of 3/31/91."Statistics on participants in registered apprenticeship programs; represents about 70% of national apprenticeshipdata. + V ickers, Margaret, Buildinga National System for School-to-Work Transition:Lessons from Britain and Australia. Somerville, Massachusetts: Jobs for the Future,August 1991.

NUR The Forgotten IV Two-Third5: nit Hispanic Perspective on Apprenticeship,European Style 5() APPENDIX B: Consultation Schedule

DATE ACTIVITY

Evening of March 13 Americans travel to Washington, D.C. or early March 14

11:00 a.m.3:00 p,m. Orientation in Washington, D.C. March 14

Afternoon of March 14 Americans travel to Frankfurt Morning of March 15

Noon March 15 Session with former Ethnic Minority 5:00 p.m, March 16 Fellows

Morning of March 17 Visits to apprenticeship programs Noon of March 19 and meetings with minority leaders in Frankfurt

Noon March 19 Travel to Essen; meetings in and near Essen Evening of March 20

Morning of March 21 Travel to Copenhagen

March 22 Weekend day in Copenhagen

Morning of March 23 Visits to apprenticeship programs Evening of March 24 and meetings with minority leaders in Copenhagen

March 25 Travel to Gothenburg for the day; visits to apprenticeship programs in Gothenburg; return to Copenhagen

March 26 Final meetings in Copenhagen Debriefing meeting (Copenhagen)

Morning of March 27 Return to the United States

60 NCLR The Forgotten If: Two-Tlurds .4n Hispanic l'el:qiectice on .117nentweship,Floolvan Style National Council of La Raza Board of Directors

EXECUTIVE COMMITTEE GENERAL MEMBERSHIP Ramon Muiguia Attorney at Law CHAIRPERSON Ed Avila Watson & Dameron Administrator Kansas City, MO Dr. Audrey Alvarado Community Redevelopment Agency Dir. of Affirmative Action Los Angeles, CA Ella Ochoa University of Colorado Executive Director Denver, CO Dr. Gloria Bonilla-Santiago Nebraska Assoc. of Farmworkers Graduate School of Social Work North Platte, NE FIRST VICE CHAIRPERSON Rutgers University Daniel Ortega, Jr., Esq. John Huerta, Esq. Camden, NJ Partner Staff Attorney Mateo Camarillo Ortega & Moreno, P.C. Western Cntr. on Law & Poverty Quetzal Communications, Inc. Phoenix, AZ Los Angeles, CA Chula Vista, CA Deborah Szekely SECOND VICE CHAIRPERSON Tony Enriquez Washington, D.C. T.M.E., Inc. Irma Flores-Gonzales Tucson, AZ The Honorable Carlos Truan Consultant State Senator, District 20 W.K. Kellogg Foundation The Honorable Fernando Ferrer Corpus Christi, TX Portland, OR Bronx Borough President Bronx, NY The Honorable Mar:' Rose Wilcox SECRETARY/TREASURER Supervisor, District 5 Humberto Fuentes Amos Atencio Maricopa County Board of Supervisors Execuu,Director Executive Director Phoenix, AZ Idaho Migrant Council Siete Del Norte Caldwell, ID EMERITUS DIRECTORS Embudo, NM Catalina Garcia, M.D. Herman Gallegos AT-LARGE MEMBERS Anesthesiologist Brisbane, CA Dallas, TX Patricia Asip Dr. julian Samora Mgr., Special Segment Mrktg. Pedro Jose Greer, Jr., M.D. Department of Sociology J.C. Penney Company, Inc. Medical Director University of Notre Dame Dallas, TX Camillus Health Concern R.P. (Bob) Sanchez, J.D. Miami, FL Rita Di Martino Attorney at Law Dir., Federal Government Affairs Ana Sol Gutierrez McAllen. TX AT&T Member Mitchell Sviridoff Washington, D.C. Board of Education APCO Associates Montgomery County, MD Herminio Martinez, Ph.D. New York, NY Baruch College Helen Hernandez Gilbert R. Vasquez, C.P.A. School of Education President President City University of New York The Legacy Group Vasquez and Company New York, NY Encino, CA Los Angeles, CA Alicia G. Martinez NCLR PRESIDENT & CEO LEGAL COUNSEL Soc. Svcs. Administrator Ratil Yzaguirre City of San Antonio Christopher Lipsett. Esq. President San Antonio, TX Wilmer, Cutler and Pickering National Council of La Raze Washington, D.C. Washington, D.C. Arabella Martinez Chief Executive Officer Spanish Speaking Unity Council Oakland, CA