JFF Recommendations for the Administration's National Strategic Plan for Advanced Manufacturing

Said Jahanmir
Executive Secretary, National Science & Technology Council, Subcommittee for Advanced
Manufacturing, Executive Office of the President
Advanced Manufacturing National Program Office
100 Bureau Drive
Gaithersburg, MD 20899

RE: Subcommittee on Advanced Manufacturing of the National Science and Technology Council, the Office of Science and Technology Policy (OSTP) National Strategic Plan for Advanced Manufacturing RFI

Dear Mr. Jahanmir,

For over 40 years, Jobs for the Future (JFF) has been dedicated to advancing education and workforce system reforms that drive stronger economic outcomes for American learners and workers. In 2023, JFF made a bold new commitment: by 2033, 75 million Americans facing barriers to economic advancement will have quality jobs.

Advanced manufacturing is central to reaching that goal. The sector is both a pillar of U.S. competitiveness and one of the nation’s strongest engines for high-quality employment. As of February 2025, there are 13 million U.S. manufacturing workers and more than 556,000 open positions; by 2030, demand for 3.8 million additional jobs is projected. And what’s more, these are good jobs, with average wages in manufacturing reaching $29.03/hour this past month and weekly earnings increasing by $52.21 over the past year. Many of these positions do not require four-year degrees yet offer family-sustaining wages and long-term career progression.

But the sector is under strain. The workforce is aging (median age 44.1) with a looming skilled labor shortage due to retirements. As seasoned workers exit the industry, manufacturing confronts pressing labor shortfalls—making it increasingly challenging to fill positions that require specialized skills and expertise. At the same time, the sector is facing accelerating technological change in areas such as semiconductors, energy, aerospace, and biomanufacturing.

These challenges not only create workforce shortages but also hamper innovation and growth. That is why JFF is responding to this RFI to offer support for America’s advanced manufacturing sector, ensuring our nation can effectively respond to these challenges and develop a ready workforce.

Our organization is uniquely positioned to inform the administration’s National Plan for Advanced Manufacturing. JFF’s Center for Apprenticeship & Work-Based Learning (the center) has been a national leader in expanding apprenticeships in manufacturing. Since 2015, the center has supported more than 14,000 apprentices—nearly 10,000 in manufacturing alone—through federal and philanthropic partnerships, including the U.S. Department of Labor’s Industry Intermediary Contract and the American Apprenticeship Initiative (AAI). Across these efforts, JFF has engaged nearly 2,000 employers, built more than 80 new programs, and connected 38% of apprentices from underrepresented backgrounds to opportunities in manufacturing.

Through our Employer and Workforce Solutions practice, JFF has advanced sector strategies, strengthening alignment between employer demand and workforce and education systems at the state and regional level. JFF leads the national community of practice for the Good Jobs Challenge, a sector initiative administered through the Department of Commerce’s Economic Development Administration. In this role, JFF convenes and provides technical assistance and coaching to the 32 grantees, including seven sites focused on expanding industry talent strategies in manufacturing. JFF also leads the national community of practice for the 34 grantees in the Building Pathways to Infrastructure Jobs program administered through the Department of Labor, Employment and Training Administration, which is focused on advancing public-private partnerships to strengthen on-ramps to careers in manufacturing, IT, and professional services for underemployed workers.

Together, these efforts demonstrate JFF’s deep experience working across federal, state, regional, and employer partners to build strong talent pipelines, expand access to quality jobs, and align training with industry needs. With decades of sector strategy leadership, proven results in scaling apprenticeships and work-based learning, and a unique role convening national communities of practice, JFF is well-positioned to inform the administration’s National Strategic Plan for Advanced Manufacturing and to help ensure that investments translate into durable workforce and economic outcomes.

Response to National Strategic Plan for Advanced Manufacturing RFI Questions

6a. What are the main challenges in attracting, training, and retaining a skilled workforce for advanced manufacturing, and how can they be addressed

Employers across the advanced manufacturing sector face multiple, interrelated workforce challenges:

• Attracting workers. The sector struggles with low awareness not only among young people and those just entering the workforce, but also among mid-career individuals who could successfully pivot into manufacturing if they better understood how their existing skills translate. At the same time, the industry continues to face persistent gender and racial gaps. These challenges are compounded by an aging workforce and lingering misperceptions of manufacturing as low-wage or low-skill work.
• Training workers. Many applicants lack foundational math, measurement, and digital skills. Employers—particularly small and midsize firms—often face long delays launching apprenticeships, updating curricula, or investing in new equipment while meeting production targets.
• Retaining workers. Rigid schedules, limited advancement pathways, and minimal supervisor training in adult learning and coaching contribute to high early attrition. In addition, credentials do not always map cleanly to actual competencies, creating mismatches and frustration for both workers and employers.

To address these challenges, JFF offers the following solutions:

• Prioritize career awareness and exposure. Young people must be able to see advanced manufacturing as a viable, high-quality career option. The Manufacturing Advocacy and Growth Network (MAGNET), for example, serves as the Northeast Ohio partner of the Ohio Manufacturing Extension Partnership (Ohio MEP), part of the U.S. Department of Commerce’s NIST Manufacturing Extension Partnership. MAGNET helps small and midsize manufacturers increase sales, create jobs, and generate cost savings through technological innovation, workforce training, and improved management practices. Importantly, MAGNET provides students with exposure to advanced manufacturing careers through site tours, summer jobs, pre-apprenticeship and apprenticeship opportunities, and direct engagement with industry professionals. These experiences are critical in changing perceptions, sparking interest, and building durable connections to the sector.
• Strengthen public–private partnerships. High-quality skill development requires coordination between employers and the public sector to design training, develop sustainable funding models, and get better data to identify what works. Federal policy should continue to advance models that encourage these partnerships, such as the Good Jobs Challenge, industry sector partnerships, and other employer-driven training programs, whether for current workers or untapped talent. As an example, the Ohio Manufacturers Association (OMA) has created strong industry partnerships under its Good Jobs Challenge project while leveraging technical assistance from JFF. Since their project started, OMA has established 19 manufacturing sector partnerships across Ohio, engaged 1,200 local manufacturers, and has successfully placed or upskilled more than 2,700 individuals into quality manufacturing jobs.
• Modernize & Expand Registered Apprenticeships (RAs): Apprenticeship is a proven strategy that allows workers to earn wages while gaining technical training and durable skills for long-term success. The administration’s bold goal of reaching one million active apprentices is both timely and essential for meeting future labor demand in advanced manufacturing. To reach this goal, JFF encourages continued emphasis on avoiding a bifurcated RA system and accelerating registration timelines; expanding RA into priority sectors, including advanced manufacturing; sharpening the value proposition of RA for both employers and workers; and encouraging state innovation while ensuring federal funding drives quality and measurable results. The administration has an opportunity to move from system-building to action, with a focus on sectoral uptake, cross-state consistency, and field-ready models that can drive rapid growth.
• Embed wraparound supports. Barriers such as child care, transportation, and coaching must be addressed if workers are to persist and complete training. Early data from JFF’s recently launched National Apprentice Fund underscore the scale of need: we received 2,719 applications for just 750 slots, with 5% from the advanced manufacturing sector. Nearly all advanced manufacturing applicants reported financial strain: 41% sometimes falling short of covering basic expenses, 39% just able to cover expenses, and 19% regularly struggling to meet basic needs. Applicants across sectors also identified child care, transportation reliability, and mentorship or coaching as critical barriers beyond financial aid. Given that two-thirds of advanced manufacturing apprenticeships last more than 30 months, these findings highlight that short-term stipends are insufficient; apprentices need sustained, bundled supports over multiple years. JFF is continuing to analyze these data through surveys and interviews, with a full evaluation expected by March 2026. Embedding wraparound supports into skill development programs—and ensuring employers and public partners design them together—will improve outcomes, particularly for underrepresented workers. Federal investment should also support sustainable funding models and stronger data systems to measure impact and drive continuous improvement.

6b. How can Federal agencies and federally funded R&D centers develop, align, and strengthen all levels of advanced manufacturing training, certification, registered apprenticeships, and credentialing programs?

Federal agencies and federally funded R&D centers can create a clearer, more consistent backbone for training and credentialing in advanced manufacturing by prioritizing the following areas:

• Employer-Driven Training. None of this work can succeed without strong employer engagement. Federal agencies should bring industry together with training providers and other stakeholders to build demand-driven pathways to good jobs that provide family-sustaining wages. To achieve this, agencies should structure federal funding opportunities to require robust employer participation in regional workforce efforts, including contributions to curriculum development, co-delivery of training, mentorship, matching investments, earn-and-learn opportunities, and hiring/upskilling commitments. Public investment should be used as a lever to incentivize these commitments, while also prioritizing sector strategies that ensure collective approaches across industries and within regions. Sector partnerships are particularly critical for small and midsize employers (SMEs), who often lack the resources to independently offer training but are vital to regional economies, especially in small towns and rural areas. Importantly, employer-driven training does not mean employers should shoulder the full burden of delivering or administering training; overly complex compliance and reporting requirements can deter participation. Models like Toyota’s FAME program demonstrate how standardized curricula and shared credentials can signal candidate readiness without undermining competitiveness, offering a promising blueprint for scaling sector-wide approaches.
• Registered Apprenticeship. Registered Apprenticeship (RA) remains one of the most effective employer-led training models, but today’s system is fragmented. State Apprenticeship Agencies (SAAs) often operate under different rules, recognized occupations, approval councils, and timelines—creating a patchwork that complicates navigation, particularly for multi-state employers, and slows program growth. The U.S. Department of Labor and partner agencies should address these barriers by:
  • Streamlining and modernizing the RA system to encourage employers registering nationally, aligning occupation lists and approval councils, and standardizing data and reporting so programs are portable and easier for employers to launch.
  • Establishing Apprenticeship Innovation Zones (AIZs), state-led regulatory sandboxes tied to priority industrial bases that allow rapid registration, competency-based frameworks, ratio relief, and state-level employer supports such as intermediaries or tax credits.
  • Launching a National Employer Incentive Fund to offset first-year employer costs, reward apprenticeship intermediaries for both enrollment and completion, and drive durable changes in hiring and advancement practices, particularly for large employers and industry consortia.
• Employer & R&D Insights. Federal agencies and R&D centers can strengthen training and credentialing by ensuring that emerging technologies are translated into teachable content and that training systems evolve in step with innovation. This includes developing open-source resources tied to new technologies such as automation, AI, robotics, and advanced materials; hosting instructor development programs to keep educators aligned with industry practices; and supporting technical assistance, outcome tracking, and common data standards so employers can trust that new programs are efficient to launch, responsive to technological change, and recognized across regions. By embedding training considerations into federally supported R&D agendas, agencies can ensure that innovations at the lab or pilot level flow directly into workforce preparation.
• Support Innovative Models and Solutions. JFF partnered with The Manufacturing Institute, a national industry association, to support service members and veterans transition from the military to civilian employment in the manufacturing sector. Through the Manufacturing Readiness Learner and Employment Record (LER) pilot, JFF developed and issued new digital badges aligned with the Manufacturing Skills Standards Council (MSSC) and focused on the foundational skills of maintenance, quality, and safety. Through this pilot, over 460 active-duty military personnel and veterans translated their skills and experience, leading to the issuance of 1,826 digital badges aligned with high-demand manufacturing skills. This effort also benefitted employers, with participating companies indicating that the badges clearly communicated skills and could be embedded within the hiring process in qualitative interviews with JFF.
• Role of Intermediaries. Federal agencies and R&D centers must also support intermediaries that connect employers, training providers, and public partners. Intermediaries reduce the burden on individual employers—particularly SMEs—by providing hands-on assistance to design, launch, and sustain programs. They also help translate needs across partners, ensuring consistency, alignment, and scale. Supporting intermediary-led communities of practice also advances state and local innovation by cross-pollinating best practices and facilitating intentional collaboration across regions, enabling the scaling of effective practices. JFF has demonstrated the value of this role through efforts such as the DOL Industry Intermediary Contract focused on advanced manufacturing and related occupations, the American Apprenticeship Initiative, and the Good Jobs Challenge community of practice.

By advancing these strategies, federal agencies and R&D centers can ensure that advanced manufacturing training systems are not only aligned and efficient but also accessible, scalable, and ready to meet the demands of a rapidly evolving economy.

7a. In what ways can the Federal government assist in the development of advanced manufacturing clusters and technology hubs nationwide, beyond funding needs?

The Federal government has already demonstrated the power of paired investment and coordination through the CHIPS and Science Act, where funding was coupled with regional hub development, workforce requirements, and cross-agency alignment. That model can and should be extended to advanced manufacturing more broadly, including fields such as energy, aerospace, biomanufacturing, and shipbuilding.

Federal agencies can play a catalytic role by designating hubs that bring together employers, training providers, and research institutions around shared priorities, embedding workforce development at the core so that employer demand and talent supply grow in tandem. Agencies can require cross-sector governance structures, shared data systems, and outcome tracking mechanisms to ensure accountability among partners and to achieve long-term goals. Additional tools—such as tax incentives, access to shared equipment, and regulatory clarity—can reinforce industry participation and strengthen the broader manufacturing ecosystem.

Beyond financial investment, the federal role includes aligning policies across agencies so that training, innovation, and workforce programs move in the same direction; streamlining apprenticeship and credential approvals to reduce delays; using convening power to build durable regional partnerships; improving access to data on industry demand, skills needs, and supply chains; and connecting hubs to federally funded labs and R&D centers to speed technology transfer to local jobs.

The administration’s recently announced AI Workforce Hubs offer a compelling model. As outlined in both the administration’s AI and Talent Plans, the AI Workforce Research Hub under the Department of Labor will serve as a sustained federal effort to evaluate the impact of artificial intelligence on the labor market, in collaboration with BLS, the Census Bureau, and the BEA. By producing recurring analysis, conducting scenario planning, and generating actionable insights for workforce and education policy, this model illustrates how the federal government can combine research, coordination, and workforce integration to shape emerging technology fields. A similar approach applied to advanced manufacturing clusters would help ensure that innovation is matched by a skilled, adaptable workforce and that regional hubs remain competitive and resilient in the long term.

7b. Is there a need for new or expanded advanced manufacturing clusters or technology hubs for the competitiveness of U.S. manufacturers, and if so, in what sectors or technologies?

Yes. New and expanded hubs are needed to sustain competitiveness, particularly in semiconductors, energy and electrification, aerospace, biomanufacturing, and advanced shipbuilding, as well as in cross-cutting enabling technologies such as advanced materials, robotics, and AI that support multiple value chains.

7c. Should Federal incentives prioritize industry-specific advanced manufacturing clusters or instead focus on technology hubs centered on advanced technologies, critical components, and materials? If so, why?

The manufacturing system is highly interconnected. A company may be a supplier in one value chain and a customer in another; the same component can flow through multiple sectors before final assembly. Prioritizing only industry-specific clusters risks missing these interdependencies. Federal incentives should therefore emphasize cross-cutting technologies, shared infrastructure, and flexible workforce pipelines that benefit multiple fields and can adapt as technologies evolve. Most manufacturers agree on a common set of entry-level skills; building portable, scalable training around these competencies supports flexibility, coordination, and resilience—key for competitiveness and national security.

10. What are examples of public-private partnership models (at the international, national, state, and/or local level) that could be expanded to facilitate manufacturing technology development, technology transition to market, and workforce development?

Due to JFF’s mission and work, we have seen an array of public-private partnership models work specifically in the workforce development field. We believe many of these models can be scaled, including:

• Employer-Driven Training Programs: Partnerships between industry and workforce training providers to fill high-demand and well-paying jobs in key sectors, including advanced manufacturing. These programs can generate large earnings gains for workers while helping employers find qualified jobseekers for hard-to-fill roles. Programs like Per Scholas and Project Quest, that pair industry-aligned credentials and hands-on experience, train learners specifically for high-demand roles that raise earnings. These programs are generating positive outcomes for both business and workers, with Per Scholas demonstrating earnings gains of $5,000 or more per year for workers, and Year Up—a program for young high school graduates—generates even larger impacts.
• Industry Sector Partnerships: Sector Partnerships are a proven strategy to build strong talent pipelines that train workers for quality, in-demand jobs and help businesses address labor shortages at the regional level. They succeed by bringing together key stakeholders such as businesses, training providers, higher education, community-based organizations, and labor organizations to create training strategies collaboratively and address gaps in alignment between labor market supply and demand. Sector partnerships also ensure that training—whether it includes an industry-recognized credential, workforce training, college degree, or boot camp program—integrates the skills and competencies required by businesses. JFF has collaborated with highly successful manufacturing sector partnerships across the nation, including those led by Florida Gulf Coast University and Fresno Economic Development Corporation as part of their Good Jobs Challenge grant work. Further, a recent evaluation of sectoral training partnership programs in advanced manufacturing and health care by Mathematica found that they led to increases in employment and earnings for participants.
• Registered Apprenticeship (RA): Data collected from the RA system shows that workers who complete these programs earn an average annual salary of $84,000 (higher than the national average of $66,000) and lifetime earnings of $300,000 more than their non-apprentice counterparts. The benefits for employers are equally compelling. Apprenticeships enhance recruitment, increase worker retention, foster knowledge transfer from experienced employees, and significantly improve retention—94% of apprentices retain employment after completing their apprenticeship program. For every $100 businesses invest in apprenticeship programs, they see an average return of $144 through increased productivity, reduced costs, and frontline innovation. Under the American Apprenticeship Initiative (AAI), JFF partnered with the U.S. Department of Labor and six workforce/labor intermediaries to scale manufacturing apprenticeships across 16 states, beginning in the Midwest. The Advanced Manufacturing Community of Practice (AMCC) convenes regional organizations focused on advanced manufacturing to share practices, align training with technology adoption, and accelerate talent pipelines.

These models distribute costs, reduce duplication, ensure training relevance, and create durable regional networks that can absorb new technologies and translate them into local training and jobs.

11. The current 2022-2026 National Strategy for Advanced Manufacturing has three top-level goals, each with objectives and priorities: (1) Develop and implement advanced manufacturing technologies; (2) Grow the advanced manufacturing workforce; and (3) Build resilience into manufacturing supply chains and ecosystems.

11a. Are these goals appropriate for the next 4-5 years? Why or why not?

Yes. These goals remain appropriate because they capture the most urgent and interconnected needs in the sector. Growing the workforce is critical given retirements and the projected millions of unfilled jobs by 2030. Developing and implementing advanced technologies is essential as automation and AI continue to reshape production—yet small and midsize manufacturers still struggle to integrate these tools at scale. Building resilience remains vital given recent disruptions and deep interdependencies across supply chains.

What must evolve is how these goals are pursued. Technology development should be tied directly to workforce readiness, with training content and certification aligned as soon as new processes reach the plant floor. Workforce initiatives must move beyond recruitment into long-term retention and advancement, with clear upskilling scaffolds, wage progression, and portable credentials.

Supply chain resilience cannot be addressed by focusing only on a handful of strategic materials or industries; it requires strengthening the entire interconnected system through shared infrastructure, data transparency, and policies that support SMEs as well as large anchors. In short, the goals are correct, but the strategy should push harder on integration, speed of execution, and system-wide investment, so technology, talent, and supply chains reinforce one another rather than moving on separate tracks.

11b. What emerging needs or opportunities might require the addition of new top-level goals, and why?

As AI diffuses into design, production, quality, maintenance, and logistics, the strategy should include a dedicated goal to accelerate responsible adoption and ensure training, certification, and job design evolve in parallel.

12. Is there any additional information related to advanced manufacturing in the United States, not requested above, that you believe should be considered? If so, describe.

JFF would like to emphasize the importance of ensuring that workforce development in advanced manufacturing is industry-driven and sustained through strong public–private partnerships. Employers must be central to talent development, but they cannot succeed alone.

Federal policy should continue to incentivize employer engagement by prioritizing three key strategies. First, expand apprenticeship and work-based learning to serve both new entrants and incumbent workers, ensuring training addresses the aging workforce, meets evolving skill demands, and creates long-term advancement opportunities. Second, strengthen sector partnerships so employers in the same region can collaborate on demand-driven solutions. Third, embed wraparound supports and portable credentials into these pathways so underrepresented workers can persist and succeed. Taken together, these strategies form a coherent, employer-aligned system that builds the workforce manufacturers need while expanding access to quality jobs.

Looking ahead, we urge the administration to support not only the development of advanced manufacturing clusters and hubs, but the infrastructure required to ensure they deliver real outcomes at scale. Intermediaries are critical in convening partners, aligning training with technology adoption, and spreading costs and risks across employers. With federal backing, they can help regions translate emerging technologies into training, strengthen accountability for results, and ensure investments reach small and midsize manufacturers. Embedding these practices into the National Strategic Plan for Advanced Manufacturing will help build a system that is globally competitive, resilient, and accessible.

Conclusion

JFF welcomes the opportunity to collaborate on strategies to unlock the full potential of advanced manufacturing for American economic opportunity, growth, and competitiveness. For further discussion, please contact Taylor Maag, Director of Workforce Policy at JFF (tmaag@jff.org).