Five Lessons Michigan Has Already Learned About Workforce Pell

By Brandy Johnson

Brandy Johnson is President of the Michigan Community College Association and brings extensive leadership experience in higher education policy, having served in Governor Gretchen Whitmer’s administration as education policy advisor and manager of the Office of Sixty by 30, as well as under Governor Jennifer Granholm as a policy fellow and college access coordinator. She founded the Michigan College Access Network in 2010 and led the organization as Executive Director until 2019.

After years of discussion and debate, Workforce Pell is finally here.

Across the country, colleges are identifying eligible programs, state agencies are developing approval processes, and policymakers are eager to see this historic investment expand opportunity for students seeking short-term, high-quality workforce training. At the Michigan Community College Association, we have the privilege of serving as the bridge between our 31 community colleges and state agencies as the state implements this policy.

Michigan certainly doesn't have all the answers; we're learning alongside everyone else. But after spending the last several months working with community colleges, agencies, and employers, I've come away with a few lessons that may be helpful as Workforce Pell moves from policy to practice.

Lesson #1: Be nice to the bureaucrats.

Behind every implementation timeline is a group of public servants working incredibly hard to make the policy work. They're interpreting federal guidance, coordinating across agencies, answering countless questions, troubleshooting problems that didn't exist six months ago—all while juggling their regular responsibilities.

In Michigan, I've had the privilege of watching leaders like Tracy Pierce at the Michigan Department of Labor and Economic Opportunity and Alisha Cederberg at the Michigan Department of Lifelong Education, Advancement, and Potential pour an extraordinary amount of time and energy into Workforce Pell implementation without new resources.

They deserve our patience and our appreciation.

My point: celebrate the people doing the behind-the-scenes work. Send them handwritten thank-you notes. Remember, Workforce Pell isn't being implemented by regulations. It's being implemented by real people.

Lesson #2: Implementation is a team sport.

One of the biggest misconceptions about public policy is that once Congress passes a law, the hard part is over.

In reality, the hard part is just beginning.

Successful Workforce Pell implementation requires colleges, employers, state and local workforce agencies, and financial aid experts to move in the same direction at the same time. That kind of coordination doesn't happen on its own.

This is where statewide community college associations can make all the difference. We convene colleges to share what's working, translate federal guidance into practical implementation strategies, and liaise with state officials to amplify early insights that help them streamline technical assistance efforts. In other words, when one college discovers a "cheat code," we disseminate the answers to ensure every college benefits (especially smaller and rural colleges that don't have the same level of internal capacity).

Lesson #3: Don't confuse speed with success.

I understand the temptation to measure Workforce Pell by how many programs are approved in the first year.

I think that's the wrong metric.

This is a permanent change to federal financial aid, not a pilot project. We should be focused on building high-quality programs that lead to meaningful employment and strong wages, not simply approving as many programs as possible.

Workforce Pell remains a need-based financial aid program. Students still need to complete the FAFSA and meet Pell eligibility requirements. That means Workforce Pell will be transformative for many learners, but it won't reach every incumbent worker looking to build new skills. It is an important new tool but not the only tool our workforce system needs.

But that's exactly why we should think bigger.

The real opportunity isn't simply adding another program that’s eligible for financial aid. It's using Workforce Pell as a catalyst to strengthen how community colleges partner with employers, design workforce programs, advise students, and create seamless pathways from short-term credentials to degrees. If we treat Workforce Pell as a systems-change opportunity instead of just a funding stream, its impact will extend far beyond the students who receive Pell grants.

That's the kind of long-term success worth measuring.

Lesson #4: Maybe it's time to retire the phrase "non-credit."

One of my favorite things about Workforce Pell is that it challenges one of higher education's least helpful distinctions.

Students don't wake up wondering whether they should pursue a "credit" or "non-credit" program. Employers don't hire based on which side of the organizational chart a credential came from. They care about whether someone is prepared to do the job.

That's exactly why Workforce Pell requires these programs to connect to credit-bearing pathways. Students shouldn't have to choose between getting a job today and earning a degree tomorrow.

Workforce Pell gives community colleges an opportunity to build stronger pathways between short-term workforce training, certificates, degrees, and lifelong learning. That's good for students, good for employers, and good for our institutions.

Lesson #5: Don't stop investing in implementation.

Since the announcement of Workforce Pell, competitive federal grants like the Strengthening Community College Training Grant have helped states build the infrastructure and technical assistance needed to bring this work to life.

That experience has reinforced another lesson: when the goal is statewide implementation, states need extra capacity. Future rounds of federal investments should consider allowing state agencies to apply alongside colleges or statewide intermediaries. When the goal is coordinating implementation across dozens of colleges, the organizations already leading that work are often best positioned to scale it.

Most importantly, we should resist the urge to declare victory—or failure—too quickly.

We'll learn. We'll make mistakes. We'll adjust. We'll improve. That's exactly what successful implementation looks like.

If Workforce Pell fulfills its promise, it won't be because Congress passed a bill. It will be because community colleges, employers, state agencies, and organizations like ours worked together to turn legislation into opportunity for students and employers.

And if someone at your state agency has been answering your emails, sitting through your meetings, and helping make Workforce Pell possible along the way... buy them a cup of coffee.