South Dakota is the fourth state in the country to commit to President Donald Trump’s federal education tax credit program, Republican Gov. Larry Rhoden announced Friday in Sioux Falls.
Under the program, South Dakotans who owe federal income taxes can either send up to $1,700 to the federal government, or they can donate that $1,700 to a government-recognized scholarship granting organization to public, private or homeschool entities in the state. The program starts in 2027.
Nebraska’s Republican Gov. Jim Pillen announced the state’s commitment in September. Republican governors for North Carolina and Tennessee announced their commitment this summer. Oregon, New Mexico and Wisconsin officials said they do not intend to opt into the program. Some critics nationally have questioned whether there will be proper guardrails, accountability and “quality control” in place.
Rhoden called the imminent program a “winning situation” for South Dakota taxpayers.
“I’d just as soon give those dollars to a private school than Uncle Sam,” Rhoden said at the announcement, standing in front of a row of students attending the St. Joseph Academy. “I think they know how to spend it a little wiser than the federal government.”
Rhoden added that the federal tax credit will “pair well” with South Dakota’s existing tax credit program, which allows insurance companies to donate up to a total of $5 million to a private school scholarship program for students whose families have low incomes.
South Dakota Gov. Larry Rhoden (left) and First Lady Sandy Rhoden (right) speak to St. Joseph Academy students in Sioux Falls on Nov. 11, 2025. (Photo by Makenzie Huber/South Dakota Searchlight)
Sara Hofflander, founder of St. Joseph Academy, said the school is “grateful” for the potential extra funding, though she plans to “approach everything cautiously.”
“Running an independent school obviously requires a heavy commitment from families,” Hoffman said, adding that the extra funding would “lift some of that burden, so we can focus more on the needs of our students.”
Historically, “school choice” efforts in the state have met resistance from the public school industry.
Advocates vehemently fought former Gov. Kristi Noem’s effort to introduce Education Savings Accounts, which would have provided public funding for private education and homeschool options during the last legislative session, calling the failed effort an attack on public education. Those same advocates referred to the state’s education tax credit program as “backdoor school voucher program.”
But Rob Monson, executive director for the School Administrators of South Dakota, said the program will benefit public and private education. South Dakotans can direct their tax credit dollars to organizations representing public schools in the state. The funding could be spent on not only tuition and fees for private schools, but tutoring, special needs services for students with disabilities, transportation (such as busing), afterschool care and computers.
“That’s a huge win for taxpayers of South Dakota, but also every form of education across the state,” Monson said.
South Dakota Education Secretary Joe Graves said the program will support education innovations and a “robust competitive system.”
Graves told lawmakers on Thursday, while presenting lackluster test scores to a committee, that “innovation” would be key to improving student outcomes, especially for Native American students and children living in “education deserts.”
“We’re not doing well enough, and we need to do better,” Graves said at Friday’s announcement.
If more students attend private or alternative schooling options, that would mean less state funding for public schools because of decreased student enrollment. Monson told South Dakota Searchlight that state revenues could be impacted by participation in the tax credit program, since it would remove federal tax dollars used to support other programs or go toward states. The federal government would still be obligated to fund some federal education programs, Monson added.
The scholarship funds would be available to families whose household incomes do not exceed 300% of their area’s median gross income. The U.S. Department of Treasury is expected to issue proposed rules detailing the program’s operation.
Graves said he assumes there will be reporting “at some level” of how the funds are spent.
South Dakota Searchlight is part of States Newsroom, a nonprofit news network supported by grants and a coalition of donors as a 501c(3) public charity. South Dakota Searchlight maintains editorial independence. Contact Editor Seth Tupper for questions: [email protected].
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In today’s rapidly evolving workforce landscape, higher education institutions face mounting pressure to demonstrate value, relevance and return on investment. Amid this challenge lies an underutilized strategy with remarkable potential: credit for prior learning.
We’ve long recognized CPL’s benefits for students. Learners who receive CPL credits are more likely to complete their degrees (49 percent vs. 27 percent for those without) and, on average, they earn 17.6 additional credits, finish nine to 14 months sooner and save between $1,500 and $10,200 in tuition costs (CAEL). But what’s often overlooked is CPL’s power to transform relationships between educational institutions and employers—creating a win-win-win for students, institutions and industry.
Beyond a Student Benefit
The traditional narrative around CPL emphasizes student advantages: increased enrollment, improved completion rates and reduced time to graduation. These metrics matter tremendously, but they tell only part of the story.
CPL can serve as a bridge between academia and industry, creating powerful new partnerships. When colleges and universities embrace robust CPL programs, they send a clear message to employers: We value the training and development you provide. Recognizing corporate training as creditworthy learning demonstrates respect for workplace knowledge and underscores higher education’s commitment to real-world relevance.
Employer and Workforce Gains
For employers, CPL validates that their internal training programs have academic merit. This recognition strengthens recruitment and retention efforts, as workers see clear pathways to advance their education without duplicating learning they’ve already mastered. Companies that invest in employee development also gain educational partners who understand industry needs and value the attributes that drive employee success.
The benefits extend further: Organizations with tuition remission or reimbursement programs can reduce costs while enhancing employee motivation and persistence.
Deeper Collaboration Between Higher Ed and Industry
As institutions evaluate workplace training for credit equivalency, they gain invaluable insights into industry practices and skill needs. This exchange allows colleges to refine curricula to better meet market demand, ensuring graduates possess the competencies employers seek—not just those defined within academic silos.
The hard but necessary conversations—between faculty and corporate training leaders—help ensure CPL evaluations are rigorous and relevant. Key questions include: Why include certain topics but not others? How do we know participants can demonstrate knowledge? Does the training align with broader disciplinary or leadership needs, or is it niche? These discussions strengthen both educational and workplace outcomes.
Reimagining CPL
The future of higher education lies in breaking down artificial barriers between academic and workplace learning. By embracing CPL as a cornerstone strategy—not only for student success but also for employer partnerships—institutions can position themselves at the nexus of education and employment.
This approach doesn’t diminish academic rigor; it expands our understanding of where and how meaningful learning occurs. Done well, CPL creates pathways that honor all learning, regardless of where it happens. And for learners, the message is clear: Your hard work counts.
Upward transfer is viewed as a mechanism to provide college students with an accessible and affordable on-ramp to higher education through two-year colleges, but breakdowns in the credit-transfer process can hinder a student’s progress toward their degree.
A recent survey by Sova and the Beyond Transfer Policy Advisory Board found the average college student loses credits transferring between institutions and has to repeat courses they’ve already completed. Some students stop out of higher education altogether because transfer is too challenging.
CourseWise is a new tool that seeks to mitigate some of these challenges by deploying AI to identify and predict transfer equivalencies using existing articulation agreements between institutions. So far, the tool, part of the AI Transfer and Articulation Infrastructure Network, has been adopted at over 120 colleges and universities, helping to provide a centralized database for credit-transfer processes and automate course matching.
In the most recent episode of Voices of Student Success, host Ashley Mowreader speaks with Zachary Pardos, an associate professor at the University of California, Berkeley, about how CourseWise works, the human elements of credit transfer and the need for reliable data in transfer.
An edited version of the podcast appears below.
Q: As someone who’s been in the education-technology space for some time, can you talk about this boom of ed-tech applications for AI? It seems like it popped up overnight, but you and your colleagues are a testament to the fact that it’s been around for decades.
Zach Pardos, associate professor at UC Berkeley and the developer of CourseWise
A: As soon as a chat interface to AI became popularized, feasible, plausible and useful, it opened up the space to a lot of people, including those who don’t necessarily have a computer science background. So in a way, it’s great. You get a lot more accessibility to this kind of application and work. But there have also been precepts—things that the field has learned, things that people have learned who’ve been working in this space for a while—and you don’t want to have to repeat all those same errors. And in many ways, even though the current generation of AI is different in character, a lot of those same precepts and missteps still apply here.
Q: What is your tool CourseWise and why is it necessary in the ed-tech space?
A: CourseWise is a spinoff of our higher education and AI work from UC Berkeley. It is meant to be a credit-mobility accelerator for students and institutions. It’s needed because the greatest credit-mobility machine in America, the thing that gets families up in socioeconomic status, is education. And it’s the two-year–to–four-year transition often that does that, where you can start at a more affordable school that gives two-year associate’s degrees and then transition to a four-year school.
But that pathway often breaks down. It’s often too expensive to maintain, and so for there to be as many pathways as possible that are legitimate between institutions, between learning experiences, basically acknowledging what a student has learned and not making them do it again, requires us to embrace technology.
Q: Can you talk more about the challenges with transfer and where course equivalency and transfer pipelines can break down in the transition between the two- and four-year institutions?
A: Oftentimes, when a student applies to transfer, they’ll have their transcript evaluated [by the receiving institution], and it’ll be evaluated against existing rules.
Sometimes, when it’s between institutions that have made an effort to establish robust agreements, the student will get most of their credit accepted. But in instances where there aren’t such strong ties, there’s going to be a lot of credit that gets missed, and if the rules don’t exist, if the institution does go through the extra effort, or the student requests extra effort to consider credit that hasn’t been considered before, this can be a very lengthy process.
Sometimes that decision doesn’t get made until after the student’s first or second semester, semesters in which they maybe had to decide whether or not to take such a course. So it really is a matter of not enough acknowledgment of existing courses and then that process to acknowledge the equivalency of past learning being a bit too slow to best serve a learner.
Q: Yeah. Attending a two-year college with the hopes of earning a bachelor’s degree is designed to help students save time and money. So it’s frustrating to hear that some of these students are not getting their transfer equivalencies semesters into their progress at the four-year, because that’s time and energy lost.
A: Absolutely. It’s unfortunately, in many cases, a false promise that this is the cheaper way to go, and it ends up, in many cases, being more expensive.
Q: We can talk about the transfer pipeline a lot, but I’ll say one more thing: The free marketplace of higher education and the idea that a student can transfer anywhere is also broken down by a lack of transfer-articulation agreements, where the student’s credits aren’t recognized or they’re only recognized in part. That really hinders the student’s ability to say, “This is where I want to go to college,” because they’re subject to the whims of the institutions and their agreements between each other.
A: That’s right, and it’s not really an intentional [outcome]. However, systems that have a power dynamic often have a tendency not to change, and that resistance to change, kind of implicitly, is a commitment not to serve students correctly.
Accreditors Weigh In
The Council of Regional Accrediting Commissions (C-RAC) supports the exploration and application of AI solutions within learning evaluation and credit transfer, according to a forthcoming statement from the group to be released Oct. 6. Three accrediting commissions, MSCHE, SACSCOC and WSCUC, are holding a public webinar conversation to discuss transfer and learning mobility, with a focus on AI and credit transfer on Oct. 6. Learn more here.
So what you do need is a real type of intervention. Because it’s not in any one spot, you could argue, and you could also make the argument that every institution is so idiosyncratic in its processes that you would have to do a separate study at every institution to figure out, “OK, how do we fix things here?” But what our research is showing on the Berkeley end is that there are regularities. There are patterns in which credit is evaluated, and where you could modify that workflow to both better serve the institution, so it’s not spending so many resources on manually considering equivalencies, and serve the student better by elevating opportunities for credit acceptance in a more efficient way.
That’s basically what CourseWise is. It’s meant to be an intervention that serves the institution and serves the student by recognizing these common patterns to credit acceptance and leveraging AI to alleviate the stress and friction that currently exists in affording that credit.
Q: Can you walk us through where CourseWise fits into the workflow? How does it work practically?
A: CourseWise is evolving in its feature set and has a number of exciting features ahead, which maybe we’ll get to later. But right now, the concrete features are that on the administrator side, on the staff or admissions department side, you upload an institution’s existing articulation agreements—so if you’re a four-year school, it’s your agreements to accept credit from two-year schools.
So then, when you receive transcripts from prospective transfer students, the system will evaluate that transcript to tell you which courses match existing rules of yours, where you’ve guaranteed credit, and then it’ll also surface courses that don’t already have an agreement.
If there’s a high-confidence AI match, it’ll bring that to the administrator’s attention and say, “You should consider this, and here’s why.” It’ll also bring to their attention, “Here’s peer institutions of yours that have already accepted that course as course-to-course credit.”
CourseWise compares classes in institutions’ catalogs to identify existing agreements for credit transfer and possible course-to-course transfers to improve student outcomes.
Q: Where are you getting that peer-to-peer information from?
A: We think of CourseWise as a network, and that information on what peer institutions are doing is present. We have a considerable number of institutions from the same system. California is one—we have 13 California institutions, and we’re working on more. The other is State University of New York, SUNY. We have the SUNY system central participating in a pilot. It’ll be up to the individual institutions to adopt the usage. But we have data at the system-center level, and because of that centralized data, we are able to say, for every SUNY institution that’s considering one of the AI credit acceptance requests, give that context of, “Here are other four-year peer institutions within your system that already accept this—not just as generic elective credit, but accept it as perhaps degree satisfying, or at least course-to-course credit.”
Q: That’s awesome; I’m sure it’s a time saver. But where do the faculty or staff members come back into the equation, to review what the AI produced or to make sure that those matches are appropriate?
A: Faculty are a critical part of the governance of credit equivalency in different systems. They have different roles; often it’s assumed that faculty approve individual courses. That’s true in most cases. Sometimes it’s committees; different departments will have a committee of faculty, or they may even have a campus standing committee that considers this curricular committee that makes those decisions.
But what CourseWise is doing right now to incorporate faculty appropriately is we’re allowing for the institution to define what is that approval workflow and the rules around that. If it’s a lower-division statistics class, can your admission staff make that decision on acceptability, even if it’s not existing in a current agreement?
Under what circumstances does it need to be routed to a faculty member to approve? What kind of information should be provided to that faculty member if they don’t have it, making it easy to request information, like requesting a syllabus be uploaded by the sending institution or something to that effect?
Oftentimes, this kind of approval workflow is done through a series of emails, and so we’re trying to internalize that and increase the transparency. You have different cases that get resolved with respect to pairs of courses, and you can see that case. You can justify why a decision was made, and it can be revisited if there’s a rebuttal to that decision.
Now, over time, what we hope the field can see as a potential is perhaps for certain students, let’s say, coming from out of state; it’s more a faculty committee who gives feedback to a kind of acceptance algorithm that is then able to make a call, and they can veto that call. But it creates a default; like with ChatGPT, there’s an alignment committee that helps give feedback to ChatGPT answers so that it is better in line with what most users find to be a high-quality response. Because there’s no way that we can proactively, manually accept or evaluate every pair of institutions to one another in the United States—there’s just no FTE count that would allow for that, which means that prospective students from out of state can’t get any guarantee if we keep it with that approach.
Faculty absolutely have control. We’re setting up the whole workflow so an institution can define that. But one of the options we want to give institutions is the option to say, “Well, if the student is coming from out of state or coming from this or that system, you can default to a kind of faculty-curated AI policy.”
Q: That’s cool. I’ve heard from some colleges that they have full teams of staff who just review transcripts every single day. Having a centralized database where you can see past experiences of which courses have been accepted or rejected—that can save so much time and energy. And that’s not even half of what CourseWise is doing.
A: Absolutely, and we work closely with leadership and these institutions to get feedback. And one of the people involved in that early feedback is Isaiah Vance at the Texas A&M University system, and he’s given us similar feedback where, if you have a new registrar or a new leadership that comes in, and they want to know how good the data is, they want that kind of transparency of how were decisions made, if you have that transparency in that organization to look that over, it can really help an institution get comfortable with those past decisions or decide how they should change in the future.
Q: What are some of the outcomes you’ve seen or the feedback you’ve heard from institutions that are using the tool?
A: Wehave a study that we’re about to embark upon to measure a before-and-after change in how institutions are doing business and how much it’s saving time or not, versus a control of not having the system when making these decisions.
We don’t have the results of that yet. We do have a paper out on where articulation officers, for example, are spending their time. They’re spending a lot of time on looking for the right course that might articulate. So we definitely have identified there is a problem. It’s an open question to what degree CourseWise is remedying that. We certainly are working nonstop to remedy it, but we’re going to measure that rigorously over the next year.
Some early feedback is positive, but also interesting that institutions, many of them, are spending a lot of time getting that initial data uploaded, catalog descriptions, articulations and the rigorousness and validity of that data. Maybe it’s spread across a number of Excel spreadsheets at some institutions—that problem is real—and so I think it’s going to take a field-level or industry-level effort to make sure that everyone can be on board with that data-wrangling stage.
Q: That was my hypothesis, that the tool has a lot of benefits once everything’s all set up and they’ve done the labor of love to hunt down and upload all these documents, find out which offices they’re hiding behind.
A: There are a number of private foundations, funders who are invested in that particular area. So I’m optimistic that there’s a solution out there and that we’ll be a part of that.
Q: I wonder if we can talk about how this tool can improve the student experience with transfer and what it means to have these efficiencies and database to lean back on.
A: Right now, most of the activity is with the four-year schools, because they’re the ones uploading the articulations. They’re the ones evaluating transcripts. But in the next four months, we’re releasing a student-facing planner, which will directly affect students at the sending institutions.
This planner will allow a student who’s at a community college to choose what destination school and major they’re interested in that’s part of the CourseWise network. Then [CourseWise provides] what courses they need to take, or options of courses to take that will transfer into the degree program that they’re seeking, such that when they transfer, they would only have to do the equivalent of two full years of academic work at that receiving school.
It would also let them know what other majors at other institutions they may want to consider because of how much of the credit that they’ve already taken is accepted into the degree programs there. So the student may be 20 percent of the way in completing their initially intended destination program, but maybe they’re 60 percent of the way to another program that they didn’t realize.
Q: What’s next for CourseWise?
A: So the student part is the navigation, the administrator articulation expansion and policy for expansion is creating the pathways; you need a GPS in order to know what the paths are and how to traverse them as a learner. But also states—I mentioned regularities—there are commonalities in how these processes take place, but there’s also very specific state-level concerns and structures, like common course numbering, credit for prior learning, an emphasis on community colleges accepting professional certificate programs and so forth.
I think the future is both increasing that student-facing value, helping with achievement from the student point of view. But then also leveraging the fundamental AI equivalency engine and research to bring in these other ways of acknowledging credit, whether it’s AP credit or job-training credit or certificates or cross-walking between all these different ways in which higher education chooses to speak about learning, right?
If you have a requirement satisfied in general education in California, how do you bring that to New York, given New York’s general education requirements? Are there crosswalks that can be suggested and established with the aid of AI? And I’m excited about connecting these different sorts of dialects of education using technology.
Approximately 65 percent of the 1.2 million active-duty service members in the U.S. armed forces have less than an associate degree level of education, according to 2023 data; many of them hold some college credits but no degree. Federal aid programs make enrolling in college and earning a degree more accessible for military-affiliated students, but not every student is aware of academic interventions that can help them complete a credential sooner, including credit for prior learning.
A 2024 research article found that prospective students with military experience were most likely to prioritize academic programming when selecting a college, followed by financial assistance and affordability. CPL is one way colleges and universities seek to expedite student veterans’ ability to enroll in and graduate from college, recognizing the learning already accomplished while in the armed forces.
In the most recent episode of Voices of Student Success, host Ashley Mowreader speaks with three experts from the Kentucky Council on Postsecondary Education—senior fellows Matt Bergman and Dallas Kratzer, and Tracy Teater, associate director of adult learner attainment—to discuss the state’s adult education attainment goals, challenges in CPL rollout and other models of success across the country.
An edited version of the podcast appears below.
Inside Higher Ed: Just to get us started, Matt, can you talk a little about the connection between credit for prior learning and adult learner success? What is that link and why is this an important starting point when it comes to engaging adult learners?
Matthew Bergman, senior fellow at the Kentucky Council on Postsecondary Education and an associate professor at the University of Louisville
Matt Bergman: Credit for prior learning has been around quite a long while, from the early 1930s to when we saw the transition of many military back into higher education. [We were] thinking about, how we could transition individuals that are work-ready but have some college-level and credit-worthy learning that would create more efficient pathways?
Credit for prior learning has been a huge benefit to so many of those folks with that experience. And this is just not experience alone; this is very thoroughly and rigorously assessed learning that we can translate and map directly to curriculum.
The University of Louisville was part of a 72-institution study by the Council on Adult and Experiential Learning, or CAEL, and the CPL Boost came out with some really hard-hitting empirical evidence that not only do people get to graduation faster, but they graduate at a higher rate, and also those that actually engage in this work take more credit hours.
That might seem a bit counterintuitive, but what it boils down to is this idea that you increase retention and persistence by percentage points that create a net-positive revenue for institutions along the way. So the myth of taking away tuition from the university is gone. We’ve got empirical evidence that not only does it benefit students and they save money, but actually the institutions are making more money in the long term because they are creating paths that are efficient, meaningful and impactful for these adult learners, military and beyond.
Inside Higher Ed: Why are students with military experience a focus area when it comes to CPL?
Dallas Kratzer, senior fellow at the Kentucky Council on Postsecondary Education
Dallas Kratzer: The American Council on Education has done the evaluation of a lot of military workplace learning, which can include not only the courses they’ve taken in their military careers but also the learning that they’ve had on the job.
In the military, we have a lot of different types of things that we do, and ACE has evaluated many of those. In those evaluations, the great thing is, those types of jobs and skills line up to the civilian sector. About 85 percent of what we do in the military is done in the civilian sector. So, if we can get it right and benchmark off of what ACE has done, it makes it really easy for a higher ed institution to then step across the line to the civilian sector and say, “ACE evaluated it this way. This is how it looks in the civilian sector. We can take that same credit recommendation and make some linkage there.”
As a matter of fact, O*NET has a military jobs crosswalk to civilian jobs. So linking all of that together, and the program that Matt worked on at the University of Louisville, he and I both worked with it, they use it really heavily to make that crosswalk, or that linkage between those two.
Inside Higher Ed: Part of this is from the institution side—making it clear how military experience fulfills civilian responsibilities or those job functionalities. But there’s also making that linkage for the student; if you are somebody with military experience, maybe you haven’t considered the ways that that can translate into the transition outside the civilian world.
Kratzer: You are so on the mark with that comment, because so many folks in the military just see that they’re doing their job. I did 35 years in the Air Force and worked extensively with the Army in the later years, and [military personnel] often think that what they’ve learned on the job or the things that they are doing in their career fields are just that—a job. They don’t see the experiential learning that comes along with that and how that can be translated into college credit.
I’ve had times where I’ve worked with individuals, and I’m like, “So have you gone to college?” Yes, some of them have. “Have you completed a degree?” “No, but I’ve got some college.” And then about a third of them don’t even think about it, and they would say, “No, I don’t have any college [credit] at all.” I’m like, “Actually, you do. There’s this thing called a joint service transcript, and your workplace learning, your military courses have been evaluated, and you have this pot of credits that you need to take to your higher ed institution and say, ‘How does this translate into me completing my degree?’”
Inside Higher Ed: Kentucky has a large plan at the state level to support adults and nontraditional students; how does CPL fit into this vision of student success?
Tracy Teater, associate director of adult learner attainment
Tracy Teater: The Kentucky Council on Postsecondary Education is committed to supporting and improving learner pathways, both to access and then successfully complete postsecondary goals across the age continuum, whether that is a traditional or a post-traditional student. We recognize that supporting our adult learners—whether they be adults with high school equivalency diplomas, adults enrolling for the first time or adults re-enrolling to finish their degree—leads to increased economic mobility for them and their families, increased workforce for Kentucky, of course, and an increased college-going rate for the next generation.
Because our adult learners are often parents, I can’t stress that point enough: By investing in our adult learners and our adult learner returners, we are investing in those generations to come.
Credit for prior learning is a key part of Kentucky’s larger vision for student success. It removes barriers and accelerates pathways for those adults to earn meaningful credentials. That supports Kentucky’s 60 by 30 goal, our North Star, if you will.
To ensure 60 percent of working-age adults hold that postsecondary credential by 2030, it requires that we recognize the learning and experiences that our adults often bring with them from military service, from work, from industry certifications and from their life experiences. This saves tuition dollars for our families and increases return on investment, as Matt shared earlier on, for both the campus and the state. I think also important and sometimes overlooked in this conversation is the fact that it sends a powerful message to the learner that you belong on campus and you’re respected and valued for the college credit–worthy experiences you bring. And so this sense of belonging, I think, impacts persistence towards learning goals. And so CPL for Kentucky is not a stand-alone effort. It’s woven into the broader student success agenda as a way to re-engage adults, and it’s been really exciting to be a part of the work, because Kentucky has a demonstrated commitment to adult learners.
The goals of the Kentucky Student Success Collaborative are we want to set the conditions for a culture of collaboration, and we want to build capacities of our campus partners to innovate and then ultimately accelerate progress.
Kratzer: I’d like to make a comment or tag on to what Tracy just said about one part of that, and that is the tuition dollars and how we can reduce the cost of going to college or returning to college through credit for prior learning. But more importantly, to the military community, the thing that we need to keep in mind is if they have already earned the training and the learning, and we don’t recognize that in higher ed, we’re not being a good steward of the taxpayers’ dollars, because we’re having them go back and take training that they’ve already accomplished. So this is such an important aspect to that military credit recommendation.
Inside Higher Ed: We’ve laid out a lot of the reasons why CPL is so beneficial to the state, to the institution, to the student, to their families, to their future families. But if CPL were easy to do, everyone would be doing it, and they’d be doing it well. So I wonder if we can talk about some of those hurdles when it comes to implementing and executing CPL effectively, and what sort of resources and time it takes to do this work and to do it well.
Bergman: There are a number of barriers, because it is labor-intense. In some ways now, as a result of the American Council on Education, we have military acknowledgment and recommendations for these credits that make it very tangible, almost as though it is transfer credit for most institutions. But the portfolio process that goes beyond that is a bit more labor-intense and faculty-driven. So that is a bit of a barrier.
But what we are seeing as a result of the people on this call here—Dallas, Tracy and so many others that are doing research in this field—we have seen barriers declining. The skepticism of this whole process is starting to wane in a way that is creating pathways for us to reach other institutions in Kentucky, but also nationally. And that’s good. A lot of thanks goes to some of the seminal authors in this work, like Nan Travers and Becky Klein-Collins. These individuals have produced scholarship that has really rooted empirical proof that this is most valuable. It creates efficiency. It helps with tax dollars, and when you boil down all of the pieces and parts, it becomes very process-oriented and very standard in approach.
Now, that has been a long road getting to this moment. So when you talk about barriers, they have been there for so many years that they are starting to diminish, and we are so grateful for that—not only in the Commonwealth of Kentucky, but beyond, because institutions and specifically faculty, which were the biggest barrier in acknowledgment of CPL, are starting to come onboard. Not only because of the demographic cliff, but also because of some of the skepticism that we have in higher education and the shortages that we have in enrollment now. [Faculty] are more likely open to this concept because we are taking this work, we are showing the process, we are showing a portfolio and we are being very transparent about how we calculate and assess learning and translate that to academic credit. In the moment that we do that, we show the robust process. We have new advocates for this work.
When we think about military personnel directly, we plug those individuals into some of those more traditional classes and disciplines, and those faculty are immediately like, “Bring every military learner into my class. They are so mission-driven. They are so committed to this goal of getting to the degree that I want every military learner in my classroom.”
When institutions become military-friendly, that’s when you see the pipeline. Because military folks are insular in their process of communicating about the programs that work well, that are very “military engaged,” to use the phrase from Dallas, but you have to be military engaged and ready for these learners if you’re going to serve them well. And more and more institutions are doing that, showing that commitment.
Kratzer: Just to add to what Matt’s talking about, this whole thing really boils down to awareness. And back in 2015, ACE and a couple of other organizations got together and produced this document called “Credit for Prior Learning: Charting Institutional Practice For Sustainability,” and they identified four major challenges: organizational structure, organizational awareness, student awareness and student engagement. When we see what the challenges are and then address those challenges, it’s really awareness. People just need to become more aware of the population and how what we do in the military can be translated to other sectors and other affinity groups and very easily done.
We’re in a spot right now in higher education. And Tracy alluded to this with the demographic cliff, that we see that adult learners have become a recognized population, and in that adult learner population are different subsets that we can engage with. I think the military one is the best one to start with, because so much of the work has been done and it’s just capitalizing on that. Additionally, the military community is a different set of learners. Military training is about learning, and in the military today, it is very technical thought processes, processing information, very much focused on that academic rigor. So that’s why they make some of the best students today, and anything that we can do to help attract them to our institutions will be incredibly beneficial for all of us.
Inside Higher Ed: We’ve mentioned CAEL and ACE and some other well-known organizations who are supporting this work, but are there other states that you’re learning from or other organizations that you think are doing this work well?
Bergman: One in particular is North Carolina, and through the Belk [Endowment], my buddy Mike Krause is making magic happen down there through InsideTrack and their connection to reconnecting learners that have some college and no degree, but also tying in CPL and then military-connected learners. They are going full force with the type of resources to really re-engage those learners and create a very clear path.
Oftentimes when trying to reconnect with people, they need to see how this might fit into a compartment of their lives. Because we know, as we serve these learners, they have No. 1, No. 2, No. 3 priorities and then education might come into the conversation [later]. So it’s really important for when we engage these types of learners, when we think about military learners, we have to understand that [education] is not likely priority No. 1.
I use this analogy of “Would you give up some streaming services or social media scrolling to the tune of four to five hours a week for a bachelor’s degree in two years?” And oftentimes people are going to say, “What do you mean? Of course I would.” And I say, “OK, let me break this down and work backwards,” and you look at the number of credits one can earn that they get from CPL, but also what they’ve accumulated thus far, and you start to put the pieces of the puzzle together.
States like North Carolina, Tennessee have done an absolutely wonderful job. California has gone all in on CPL as well, to really try and reconnect learners and show them that the light at the end of the tunnel is quite bright.
We learn from one another—these people are just colleagues in the weeds, really grinding, trying to find ways to really replicate and make it respective to our own institutions and just chop and drop these policies so that we really can scale and impact more and more learners. Now we have battled for years and years and years, and you can hear my passion in this, but we have fought the very traditional mechanisms of institutions, and we are starting to break down so many of those barriers, partially because of the demographic cliff, partially because of some of the skepticism. But as Dallas said, adult learners, military learners are on the forefront. We are at the table for traditional higher ed, and that is a huge change in such a benefit for these learners, because there are new funding models, there are scholarships, grants and then CPL, creating efficiency that we just didn’t have 15 years ago.
Kratz: A couple of organizations that I think are doing some interesting work here … the Council of College and Military Educators. They do an amazing job at bringing the senior leadership of the Department of Education, Department of Labor, Veterans Affairs, all these folks together to talk about education related to the military community.
One that I see as a rising star is NASPA Vets. They have a military-connected students conference every year. I was very excited to see what they’re doing, because it’s helping student affairs administrators to better understand the military population, and part of this is this whole awareness and how we can serve that community.
Of course, Student Veterans of America, it’s a great organization to have on your campus. The work they’re doing in getting the word out to service members is so important … “Hey, come and be in higher education, because we have space for you. This is part of your culture and you can be part of it through this student organization.”
Some states to add on to what Matt was saying about Tennessee and California: Ohio started this thing called Collegiate Purple Star, and I think we need to do that across the country. The reason for that is everybody’s military-friendly right now, but with both Ohio and Indiana’s Collegiate Purple Star, it’s about not only being military-friendly, but military-ready, meaning that you’ve gone the extra mile and you’ve created the pathways to degree completion for service members based on their experiential learning that they’ve had during their military careers.
Inside Higher Ed: How are you all tracking effectiveness and the impact of the work that you’re doing? What does it mean to apply data to CPL for military-affiliated students? What are some of those metrics that you’re tracking?
Teater: I would back up one step to say that data alignment has been a gap that we have learned firsthand about during this pilot. One of the things that we know is that across the broader CPL opportunities, our campus partners are tracking that in different ways, which means that it is a definite gap of how we can track impact as a state without having aligned ways to do that. I wouldn’t call it a challenge; I think I’d call it an opportunity. But it’s something that we definitely want to end this with state recommendations so that we can do a really, really good job of tracking all types of CPL across the state. That’s one gap we’ve seen that I think we will be able to end this with a definite solution to and again, looking at some of our neighboring states and how they’ve been able to address that.
Bergman: It’s important to note that the state work that we’re engaged in, the CPL Council on Postsecondary Education initiative, we are collecting data around metrics directly in growth of CPL, total numbers of credits earned, those programs that are offering them—so additional programs beyond just single adult-friendly programs at institutions—and then actually the number of humans that are connected in the work, so hiring individuals that are responsible for CPL and tracking data through the institutional research office.
We are seeing great growth there, but this is also a direct by-product of what we are seeing in the field, in research and scholarship. I did my dissertation roughly 15 years ago, and it was a really challenging enterprise to find empirical work and scholarship that would really drive my dissertation forward, looking at adult military persistence. What I see today, as I am looking at journals almost daily, is new articles, new empirical pieces and new national work and research that is popping up almost monthly now that is focused on these populations. It is such a boon to our work, because individuals are doing this work, not only for their dissertations, but in their research and scholarship field.
There were not a lot of folks doing this work many years ago, but now we have a new crop of young people jumping in as advocates and allies of military and adult learners, and it truly is making a direct impact, because we have data to lean on and say, “Here is empirical proof of how this directly impacts this individual program or this particular state or this region,” and using that to guide a lot of our push and our nudging that we do, both in Kentucky and beyond, to make institutions think differently about how they formalize policy to really attract these folks and know that they can get them to and through more efficiently.
Kratzer: ACE and CAEL just partnered together to do the national landscape of credit for prior learning, talking about how states are making those recommendations. And I think there’s a lot of work to be done yet to help states, particularly at the legislative position, to understand how to help systems better collect the information. Because from the state, we hear them say, “Yes, you must accept military credit recommendations.” And the schools go, “OK, we accepted, but we don’t apply it well.” We need to be better at counting how we apply it so that we can provide back better information to say, “It does. It is valued in our state. It’s not just brought in as elective credit, but it’s brought in as degree credit that will accelerate degree completion,” and we’re not tracking that as well as I think we could.
Inside Higher Ed: I think you bring up a really valuable point there about the different types of credit. Just because it’s accepted doesn’t necessarily mean it’s helpful to the student in their specific career goal. But I think making sure that all credit is recognized and supported as part of a degree pathway is definitely the next step that we need to see.
Bergman: I would be remiss if I didn’t mention the fact that we have nearly 150 institutions involved in the prior learning assessment network. So for listeners that are checking in on this particular podcast, you can say, “Hey, I’m going to connect with Dallas,” or “I’m going to reach out to Matt and join this prior learning assessment network and hear from these institutions that are doing this work on the ground.” Each month, it costs zero money—we have a featured individual from an institution talking about, whether it be marketing or military credit recommendation or policy implementation or the admissions process in CPL; we are looking at all angles of CPL through the prior learning assessment network from people on the ground.
Inside Higher Ed: That’s amazing. I love especially when we can talk about different institution sizes and types, because what works for one institution might not be easy to do at another.
Bergman: And the best part of that is it’s free. We are not charging individuals. We are just a community of committed professionals that have been working for so many years trying to make an impact, and now we see our crop of individuals growing and growing every single month.
Inside Higher Ed: I want to hear more about what’s next for the state as you all consider adult learners and that lofty goal of 60 percent attainment.
Teater: Matt laid it out beautifully from a national perspective; from a Kentucky perspective, we hope to do the exact same thing.
We are exploring ways to align data collection efforts so we can accurately gauge impact across the state, impact for the institutions and then impact, of course, for the adult learner. We also hope to explore ways to align and standardize credit mobility across our two-year and four-year campuses, so that credit earned at one institution can be recognized at another, so that our two-year graduates can seamlessly transfer to our four-year campuses, and then this will lead to state standards and policies to further support CPL efforts. We’re looking to some of our neighboring states on best practices there.
Then finally, we are, in the fall, launching our Kentucky Adult Attainment Network, from which we will convene a state working group and community of practice to continue to build champions for the work, but also share resources, best practices and be able to offer up policy recommendations that will enact to further address this key part of our adult learner action plan.
Inside Higher Ed: Do you have any advice or insight for others looking to support military-affiliated learners?
Kratzer: I think the big thing that my peers need to know and to understand about the military community is that there’s a significant amount of learning that they gain from their military experience. However, the service member doesn’t always appreciate it the way that we as academics can understand it. They just say, “Hey, I was just doing my job.”
Well, that job has worth and value beyond what you did when you were in the service. There’s so much more we can do. The leadership training that they get—business and industry are just dying for that kind of professional development, so let’s recognize it. Let’s help them to see how they can transition to the civilian sector and bring those great learning skills into the workplace and into higher education.
Bergman: CPL for military and beyond is being done very effectively. If your institution is not doing it perfect or is not even involved, it is being done and there are so many people that are ready to provide open-source information, policy practice, forms, strategies, techniques and nuanced information to your institution directly for free, so that you can engage in this work without having to start from scratch. So to boil it down, you don’t have to start from scratch. So many institutions are doing so well in this work, and if you want to engage, just reach out and we will plug you into the prior learning assessment network or any type of forums at the University of Louisville or share data or information that we use in the state of Kentucky’s CPL initiative. We are ready to share these things because it matters and it’s impactful.
Teater: The awareness is critical, and that’s awareness across states, across institutions and within institutions. One of the things that we have seen is sometimes just a gap in awareness on what’s possible, what’s available and then how best to pull the technical levers to make those things happen for students. So I would say every single conversation that we come out of, we learn something new, and hopefully others learn something new as well. And I just think that that awareness can’t be underestimated.
Earlier this month, higher education policy leaders from all 50 states gathered in Minneapolis for the 2025 State Higher Education Executive Officers Higher Education Policy Conference. During a plenary session on the future of learning and work and its implications for higher education, Aneesh Raman, chief economic opportunity officer at LinkedIn, reflected on the growing need for people to be able to easily build and showcase their skills.
In response to this need, the avenues for learning have expanded, with high numbers of Americans now completing career-relevant training and skill-building through MOOCs, microcredentials and short-term certificates, as well as a growing number of students completing postsecondary coursework while in high school through dual enrollment.
The time for pontificating about the implications for higher education is past; what’s needed now is a pragmatic examination of our long-standing practices to ask, how do we evolve to keep up? We find it prudent and compelling to begin at the beginning—that is, with the learning-evaluation process (aka credit-evaluation process), as it stands to either help integrate more Americans into higher education or serve to push them out.
A 2024 survey of adult Americans conducted by Public Agenda for Sova and the Beyond Transfer Policy Advisory Board found, for example, that nearly four in 10 respondents attempted to transfer some type of credit toward a college credential. This included credit earned through traditional college enrollment and from nontraditional avenues, such as from trade/vocational school, from industry certification and from work or military experience. Of those who tried to transfer credit, 65 percent reported one or more negative experiences, including having to repeat prior courses, feeling limited in where they could enroll based on how their prior learning was counted and running out of financial aid when their prior learning was not counted. Worse, 16 percent gave up on earning a college credential altogether because the process of transferring credit was too difficult.
What if that process were drastically improved? The Council for Adult and Experiential Learning’s research on adult learners finds that 84 percent of likely enrollees and 55 percent of those less likely to enroll agree that the ability to receive credit for their work and life experience would have a strong influence on their college enrollment plans. Recognizing the untapped potential for both learners and institutions, we are working with a distinguished group of college and university leaders, accreditors, policy researchers and advocates who form the Learning Evaluation and Recognition for the Next Generation (LEARN) Commission to identify ways to improve learning mobility and promote credential completion.
With support from the American Association of Collegiate Registrars and Admissions Officers and Sova, the LEARN Commission has been analyzing the available research to better understand the limitations of and challenges within current learning evaluation approaches, finding that:
Learning-evaluation decision-making is a highly manual and time-intensive process that involves many campus professionals, including back-office staff such as registrars and transcript evaluators and academic personnel such as deans and faculty.
Across institutions, there is high variability in who performs reviews; what information and criteria are used in decision-making; how decisions are communicated, recorded and analyzed; and how long the process takes.
Along with this variability, most evaluation decisions are opaque, with little data used, criteria established or transparency baked in to help campus stakeholders understand how these decisions are working for learners.
While there have been substantial efforts to identify course equivalencies, develop articulation agreements and create frameworks for credit for prior learning to make learning evaluation more transparent and consistent, the data and technology infrastructure to support the work remain woefully underdeveloped. Without adequate data documenting date of assessment and aligned learning outcomes, credit for prior learning is often dismissed in the transfer process; for example, a 2024 survey by AACRAO found that 54 percent of its member institutions do not accept credit for prior learning awarded at a prior institution.
Qualitative research examining credit-evaluation processes across public two- and four-year institutions in California found that these factors create many pain points for learners. For one, students can experience unacceptable wait times—in some cases as long as 24 weeks—before receiving evaluation decisions. When decisions are not finalized prior to registration deadlines, students can end up in the wrong classes, take classes out of sequence or end up extending their time to graduation.
In addition to adverse impacts on students, MDRC research illuminates challenges that faculty and staff experience due to the highly manual nature of current processes. As colleges face dwindling dollars and real personnel capacity constraints, the status quo becomes unsustainable and untenable. Yet, we are hopeful that the thoughtful application of technology—including AI—can help slingshot institutions forward.
For example, institutions like Arizona State University and the City University of New York are leading the way in integrating technology to improve the student experience. The ASU Transfer Guide and CUNY’s Transfer Explorer democratize course equivalency information, “making it easy to see how course credits and prior learning experiences will transfer and count.” Further, researchers at UC Berkeley are studying how to leverage the plethora of data available—including course catalog descriptions, course articulation agreements and student enrollment data—to analyze existing course equivalencies and provide recommendations for additional courses that could be deemed equivalent. Such advances stand to reduce the staff burden for institutions while preserving academic quality.
While such solutions are not yet widely implemented, there is strong interest due to their high value proposition. A recent AACRAO survey on AI in credit mobility found that while just 15 percent of respondents report currently using AI for credit mobility, 94 percent of respondents acknowledge the technology’s potential to positively transform credit-evaluation processes. And just this year, a cohort of institutions across the country came together to pioneer new AI-enabled credit mobility technology under the AI Transfer and Articulation Infrastructure Network.
As the LEARN Commission continues to assess how institutions, systems of higher education and policymakers can improve learning evaluation, we believe that increased attention to improving course data and technology infrastructure is warranted and that a set of principles can guide a new approach to credit evaluation. Based on our emerging sense of the needs and opportunities in the field, we offer some guiding principles below:
Shift away from interrogating course minutiae to center learning outcomes in learning evaluation. Rather than fixating on factors like mode of instruction or grading basis, we must focus on the learning outcomes. To do so, we must improve course data in a number of ways, including adding learning outcomes to course syllabi and catalog descriptions and capturing existing equivalencies in databases where they can be easily referenced and applied.
Provide students with reliable, timely information on the degree applicability of their courses and prior learning, including a rationale when prior learning is not accepted or applied. Institutions can leverage available technology to automate existing articulation rules, recommend new equivalencies and generate timely evaluation reports for students. This can create more efficient advising workflows, empower learners with reliable information and refocus faculty time to other essential work (see No.3).
Use student outcomes data to improve the learning evaluation process. Right now, the default is that all prior learning is manually vetted against existing courses. But what if we shifted that focus to analyzing student outcomes data to understand whether students can be successful in subsequent learning if their credits are transferred and applied? In addition, institutions should regularly review course transfer, applicability and student success data at the department and institution level to identify areas for improvement—including in the design of curricular pathways, student supports and classroom pedagogy.
Overhaul how learning is transcripted and how transcripts are shared. We can shorten the time involved on the front end of credit-evaluation processes by shifting away from manual transcript review to machine-readable transcripts and electronic transcript transmittal. When accepting and applying prior learning—be it high school dual-enrollment credit, credit for prior learning or a course transferred from another institution—document that learning in the transcript as a course (or, as a competency for competency-based programs) to promote its future transferability.
Leverage available technology to help learners and workers make informed decisions to reach their end goals. In the realm of learning evaluation, this can be facilitated by integrating course data and equivalency systems with degree-modeling software to enable learners and advisers to identify the best path to a credential that minimizes the amount of learning that’s left on the table.
In these ways, we can redesign learning evaluation processes to accelerate students’ pathways and generate meaningful value in the changing landscape of learning and work. Through the LEARN Commission, we will continue to refine this vision and identify clear actionable steps. Stay tuned for the release of our full set of recommendations this fall and join the conversation at #BeyondTransfer.
Beth Doyle is chief of strategy at the Council for Adult and Experiential Learning and is a member of the LEARN Commission.
Carolyn Gentle-Genitty is the inaugural dean of Founder’s College at Butler University and is a member of the LEARN Commission.
Jamienne S. Studley is the immediate past president of the WASC Senior College and University Commission and is a member of the LEARN Commission.
PITTSBURGH — Stephen Wells was trained in the Air Force to work on F-16 fighter jets, including critical radar, navigation and weapons systems whose proper functioning meant life or death for pilots.
Yet when he left the service and tried to apply that expertise toward an education at Pittsburgh’s Community College of Allegheny County, or CCAC, he was given just three credits toward a required class in physical education.
Wells moved forward anyway, going on to get his bachelor’s and doctoral degrees. Now he’s CCAC’s provost and involved in a citywide project to help other people transform their military and work experience into academic credit.
What’s happening in Pittsburgh is part of growing national momentum behind letting students — especially the increasing number who started but never completed a degree — cash in their life skills toward finally getting one, saving them time and money.
Colleges and universities have long purported to provide what’s known in higher education as credit for prior learning. But they have made the process so complex, slow and expensive that only about 1 in 10 students actually completes it.
Many students don’t even try, especially low-income learners who could benefit the most, according to a study by the Western Interstate Commission for Higher Education and the Council for Adult and Experiential Learning, or CAEL.
“It drives me nuts” that this promise has historically proven so elusive, Wells said, in his college’s new Center for Education, Innovation & Training.
Stephen Wells, provost at the Community College of Allegheny County in Pittsburgh. An Air Force veteran, Wells got only a handful of academic credits for his military experience. Now he’s part of an effort to expand that opportunity for other students. Credit: Nancy Andrews for The Hechinger Report
That appears to be changing. Nearly half of institutions surveyed last year by the American Association of Collegiate Registrars and Admissions Officers, or AACRAO, said they have added more ways for students to receive these credits — electricians, for example, who can apply some of their training toward academic courses in electrical engineering, and daycare workers who can use their experience to earn degrees in teaching.
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The reason universities and colleges are doing this is simple: Nearly 38 million working-age Americans have spent some time in college but never finished, according to the National Student Clearinghouse Research Center. Getting at least some of them to come back has become essential to these higher education institutions at a time when changing demographics mean that the number of 18-year-old high school graduates is falling.
“When higher education institutions are fat and happy, nobody looks for these things. Only when those traditional pipelines dry up do we start looking for other potential populations,” said Jeffrey Harmon, vice provost for strategic initiatives and institutional effectiveness at Thomas Edison State University in New Jersey, which has long given adult learners credit for the skills they bring.
Being able to get credit for prior learning is a huge potential recruiting tool. Eighty-four percent of adults who are leaning toward going back to college say it would have “a strong influence” on their decision, according to research by CAEL, the Strada Education Foundation and Hanover Research. (Strada is among the funders of The Hechinger Report, which produced this story.)
The Center for Education, Innovation & Training at the Community College of Allegheny County in Pittsburgh. The college is part of a citywide effort to give academic credit for older students’ life experiences. Credit: Nancy Andrews for The Hechinger Report
When Melissa DiMatteo, 38, decided to get an associate degree at CCAC to go further in her job, she got six credits for her previous training in Microsoft Office and her work experience as everything from a receptionist to a supervisor. That spared her from having to take two required courses in computer information and technology and — since she’s going to school part time and taking one course per semester — saved her a year.
“Taking those classes would have been a complete waste of my time,” DiMatteo said. “These are things that I do every day. I supervise other people and train them on how to do this work.”
On average, students who get credit for prior learning save between $1,500 and $10,200 apiece and nearly seven months off the time it takes to earn a bachelor’s degree, the nonprofit advocacy group Higher Learning Advocates calculates. The likelihood that they will graduate is 17 percent higher, the organization finds.
Justin Hand dropped out of college because of the cost, and became a largely self-taught information technology manager before he decided to go back and get an associate and then a bachelor’s degree so he could move up in his career.
He got 15 credits — a full semester’s worth — through a program at the University of Memphis for which he wrote essays to prove he had already mastered software development, database management, computer networking and other skills.
“These were all the things I do on a daily basis,” said Hand, of Memphis, who is 50 and married, with a teenage son. “And I didn’t want to have to prolong college any more than I needed to.”
Meanwhile, employers and policymakers are pushing colleges to speed up the output of graduates with skills required in the workforce, including by giving more students credit for their prior learning. And online behemoths Western Governors University and Southern New Hampshire University, with which brick-and-mortar colleges compete, are way ahead of them in conferring credit for past experience.
“They’ve mastered this and used it as a marketing tool,” said Kristen Vanselow, assistant vice president of innovative education and partnerships at Florida Gulf Coast University, which has expanded its awarding of credit for prior learning. “More traditional higher education institutions have been slower to adapt.”
It’s also gotten easier to evaluate how skills that someone learns in life equate to academic courses or programs. This has traditionally required students to submit portfolios, take tests or write essays, as Hand did, and faculty to subjectively and individually assess them.
Now some institutions, states, systems and independent companies are standardizing this work or using artificial intelligence to do it. The growth of certifications from professional organizations such as Amazon Web Services and the Computing Technology Industry Association, or CompTIA, has helped, too.
“You literally punch [an industry certification] into our database and it tells you what credit you can get,” said Philip Giarraffa, executive director of articulation and academic pathways at Miami Dade College. “When I started here, that could take anywhere from two weeks to three months.”
Data provided by Miami Dade shows it has septupled the number of credits for prior learning awarded since 2020, from 1,197 then to 7,805 last year.
“These are students that most likely would have looked elsewhere, whether to the [online] University of Phoenix or University of Maryland Global [Campus]” or other big competitors, Giarraffa said.
Fifteen percent of undergraduates enrolled in higher education full time and 40 percent enrolled part time are 25 or older, federal data show — including people who delayed college to serve in the military, volunteer or do other work that could translate into academic credit.
“Nobody wants to sit in a class where they already have all this knowledge,” Giarraffa said.
At Thomas Edison, police academy graduates qualify for up to 30 credits toward associate degrees. Carpenters who have completed apprenticeships can get as many as 74 credits in subjects including math, management and safety training. Bachelor’s degrees are often a prerequisite for promotion for people in professions such as these, or who hope to start their own companies.
The University of Memphis works with FedEx, headquartered nearby, to give employees with supervisory training academic credit they can use toward a degree in organizational leadership, helping them move up in the company.
The University of North Carolina System last year launched its Military Equivalency System, which lets active-duty and former military service members find out almost instantly, before applying for admission, if their training could be used for academic credit. That had previously required contacting admissions offices, registrars or department chairs.
Among the reasons for this reform was that so many of these prospective students — and the federal education benefits they get — were ending up at out-of-state universities, the UNC System’s strategic plan notes.
“We’re trying to change that,” said Kathie Sidner, the system’s director of workforce and partnerships. It’s not only for the sake of enrollment and revenue, Sidner said. “From a workforce standpoint, these individuals have tremendous skill sets and we want to retain them as opposed to them moving somewhere else.”
California’s community colleges are also expanding their credit for prior learning programs as part of a plan to increase the proportion of the population with educations beyond high school.
“How many people do you know who say, ‘College isn’t for me?’ ” asked Sam Lee, senior advisor to the system’s chancellor for credit for prior learning. “It makes a huge difference when you say to them that what they’ve been doing is equivalent to college coursework already.”
In Pittsburgh, the Regional Upskilling Alliance — of which CCAC is a part — is connecting job centers, community groups, businesses and educational institutions to create comprehensive education and employment records so more workers can get credit for skills they already have.
That can provide a big push, “especially if you’re talking about parents who think, ‘I’ll never be able to go to school,’ ” said Sabrina Saunders Mosby, president and CEO of the nonprofit Vibrant Pittsburgh, a coalition of business and civic leaders involved in the effort.
“Our members are companies that need talent,” Mosby said.
There’s one group that has historically pushed back against awarding credit for prior learning: university and college faculty concerned it might affect enrollment in their courses or unconvinced that training provided elsewhere is of comparable quality. Institutions have worried about the loss of revenue from awarding credits for which students would otherwise have had to pay.
That also appears to be changing, as universities leverage credit for prior learning to recruit more students and keep them enrolled for longer, resulting in more revenue — not less.
“That monetary factor was something of a myth,” said Beth Doyle, chief of strategy at CAEL.
Faculty have increasingly come around, too. That’s sometimes because they like having experienced students in their classrooms, Florida Gulf Coast’s Vanselow said.
Still, while many recognize it as a recruiting incentive, most public universities and colleges have had to be ordered to confer more credits for prior learning by legislatures or governing boards. Private, nonprofit colleges remain stubbornly less likely to give it.
More than two-thirds charge a fee for evaluating whether other kinds of learning can be transformed into academic credit, an expense that isn’t covered by financial aid. Roughly one in 12 charge the same as it would cost to take the course for which the credits are awarded.
Debra Roach, vice president for workforce development at the Community College of Allegheny County in Pittsburgh. The college is working on giving academic credit to students for their military, work and other life experience. Credit: Nancy Andrews for The Hechinger Report
There are other confounding roadblocks and seemingly self-defeating policies. CCAC runs a noncredit program to train paramedics, for example, but won’t give people who complete it credits toward its for-credit nursing degree. Many leave and go across town to a private university that will. The college is working on fixing this, said Debra Roach, its vice president of workforce development.
It’s important to see this from the students’ point of view, said Tracy Robinson, executive director of the University of Memphis Center for Regional Economic Enrichment.
“Credit for prior learning is a way for us to say, ‘We want you back. We value what you’ve been doing since you’ve been gone,’ ” Robinson said. “And that is a total game changer.”
Contact writer Jon Marcus at 212-678-7556, [email protected]orjpm.82 on Signal.
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Just over one in 10 higher education institutions enroll at least 20 percent international students.
Photo illustration by Justin Morrison/Inside Higher Ed | skynesher/E+/Getty Images
Colleges and universities with a high percentage of international students face a credit risk as the federal government continues to target international students, according to a new report from Moody’s Ratings.
Those most at risk include the 11 percent of American institutions where international students make up more than 20 percent of the student body, the ratings agency said, as well as institutions that are already struggling financially. (In total, 6 percent of students at U.S. institutions come from other countries.)
“The reduction in international students presents a credit risk for universities heavily reliant on this demographic because of potential declines in tuition income, as international students typically pay full tuition fees,” the report states. “Additionally, with declining numbers of high school students over the next several years in the U.S. leading to fewer domestic students, universities intending to fill the gap with more international students may fall short.”
The report follows the Trump administration’s months-long attack on immigrants and international students specifically, which began with the sudden removal of thousands of students from the Student Exchange and Visitor Information System, putting their legal status at risk. Since then, the administration has implemented a travel ban that includes 12 countries, prohibiting students from those countries from studying in the United States, and has targeted international students at Harvard University specifically, attempting to end the university’s ability to host international students. The State Department has also increased scrutiny into student visa applicants’ social media presences.
It’s unclear as of yet how those factors will impact international enrollment in the fall. According to a recent report by the Institute of International Education, an approximately equal number of colleges and universities said they expected their international enrollment in the 2025–26 academic year to increase (32 percent), decrease (35 percent) and stay the same (32 percent) from this year’s numbers. But the percentage who expect a decrease was much higher than last year, when only 17 percent of institutions thought they might lose international students.
The hit to the sector may not be as significant as it would be in countries like the United Kingdom and Australia, where about 25 percent of all students are international, Moody’s reported. Still, if the U.S. lost 15 percent of its international student population, a substantial number of colleges could experience at least moderate financial repercussions, according to one projection.
About one in five colleges’ and universities’ EBIDA (earnings before interest, depreciation and amortization) margins would shrink by 0.5 to two percentage points, according to the ratings agency’s calculations.
“For entities that already are under fiscal stress and have low EBIDA margins (the median EBIDA for private nonprofit colleges and universities was 11.7 percent in fiscal 2024 and 10.7 percent for publics), a change of one or two percentage points could push them into negative territory, especially if they are heavily discounting domestic tuition or losing enrollment because of demographic shifts,” according to the report. “Also, many small private schools may need to contend with federal changes to student loan and aid programs, further depressing domestic enrollment prospects and stressing budgets, especially for those with low liquidity.”
The report stresses that this model does not account for any steps the institutions might take to mitigate those losses—especially at wealthier institutions. (Fifty-four percent of institutions with at least 15 percent international students are highly selective, while 25 percent are nonselective.)
“Institutions that are highly selective, or those with considerable reserves, may better absorb the impacts by adjusting operations or increasing domestic enrollment,” it states. “Some elite institutions are less reliant on tuition, deriving income from endowments, fundraising or research, thereby mitigating the financial impact.”
Dr. Andrew J. SeligsohnHigher education in the United States has come under increasing scrutiny — but not always for the right reasons. Critics claim that colleges and universities award degrees with little economic value, limit ideological expression on campus, and operate primarily for their own financial interests, rather than as institutions of shared public value. While much in this narrative is false, it nonetheless affects the public’s attitude toward higher education and individuals’ decisions about pursuing a postsecondary degree, which may be detrimental to their economic interest.
When these critiques are made in bad faith, we should counter them with facts about the value of college attainment. It remains true for example, that a college degree is likely to yield a significant boost in earnings. Nonetheless, anyone who cares about higher education must also ask why these arguments resonate so deeply with the public. Where real frustrations are fueling legitimate skepticism, addressing those concerns can both improve higher education’s reputation and enhance its value for students, families, and society. Since the experiences that give rise to frustration and receptivity to attacks on higher education are personal experiences, it pays to drill down into the particulars to figure out what’s going on.
In that spirit, Public Agenda, in partnership with Sova and the Beyond Transfer Policy Advisory Board, set out to deepen our collective understanding of learner experiences with the credit transfer process. We knew from research on enrolled students that transfer was a source of pain for many learners. But we didn’t know how many people were affected, how much it mattered to them, and how it shaped their views of higher education more broadly. With support from ECMC Foundation, we fielded a national survey of adult Americans that interrogates transfer experience and outcomes.
Dr. Lara CouturierThe findings were striking, and they should serve as a call to action for institutions of higher education. Nearly 4 in 10 respondents reported that they had tried to transfer credit toward a college degree or credential. This included credits earned at a previous college or university, as well as credits earned from nontraditional sources. In fact, more than a third attempted to transfer credits earned from workplace training, military experience, industry certification, vocational or trade school, or other prior learning. With more households feeling the cost of inflation and needing to upskill to survive in this economy, and more higher education institutions facing enrollment declines, we should be finding ways to develop more on-ramps and clear the path to a college degree.
Unfortunately, the survey revealed that Americans who attempt to transfer encounter convoluted paths, often losing credit hours, money, and motivation along the way. One in five respondents reported having to repeat a class they had already taken because their credits didn’t transfer. Thirteen percent reported running out of financial aid as a result of having to repeat courses. And, most concerning, 16% reported that they gave up on pursuing a college degree or credential because the process of transferring was so difficult. It’s clear difficulties with transfer are not only inconveniences — they’re significant financial burdens and barriers to completion.
We also sought to understand how these direct experiences shape individuals’ broader attitudes toward higher education. We found it profoundly troubling that 74% of respondents who had tried to transfer credit agreed with the statement that two- and four-year higher education institutions care more about making money than about educating students. In fact, respondents who had tried to transfer credit were more likely to hold this jaded view than those who had attended college but had not transferred or those who had no prior experience with higher education. So while some of the current attacks on higher education may be in bad faith, it should not be surprising that they find a receptive audience among so many Americans who recall feeling personally misled.
We know, then, that credit transfer needs reform — but what exactly does that look like? Public Agenda also surveyed Americans about potential interventions, and the results are promising. First, when asked what should happen to a college with a track record of not accepting many credits for transfer, Americans felt public accountability would be more helpful than heavy-handed punitive approaches. Fifty-four percent of Democrats and 47% of Republicans agreed that institutions should have to make a plan to improve credit transfer rates. Conversely, just one-third of Republicans and Democrats thought colleges should lose their funding. But what might go into a plan for improvement? Our survey found broad support among Republicans, Democrats, and independents for a variety of policies intended to make it easier for students to transfer credits. Support is notably strong for requiring that students have free and easy access to their transcripts, credentials, and degrees; requiring institutions to create public databases with transfer information; and requiring that prospective transfer students are quickly told how many credits will be accepted.
The benefits of a better transfer process are clear and compelling. Students would face fewer obstacles to completing their degrees, leading to higher graduation rates, better individual economic outcomes, and broader prosperity. Just as importantly, higher education would rebuild trust with the public by showing that institutions are committed to serving students—not just collecting tuition dollars. And the benefits of this renewed trust extend beyond the higher education system. The perception that public institutions don’t care about ordinary Americans is a key element of the challenge our broader democracy is facing. Since the education system is a direct way many people interact with our government, restoring confidence that higher education works for all Americans can further inspire faith in public institutions.
If we ignore issues like the broken credit transfer system, skepticism about higher education will continue to fester. Worse, more students may give up on college altogether, missing out on opportunities for personal and professional growth—all of which ultimately erodes our democracy. Pushing back against misinformation isn’t the only way to defend higher education; we must acknowledge and address the real barriers students face. Credit transfer is an experience shared by many with cross-partisan support for reform—now is the time to act. Reforming the transfer process won’t solve every challenge facing higher education, but it’s a clear and necessary step toward improving the system for the good of both students and institutions themselves.
Dr. Andrew J. Seligsohn is president of Public Agenda, a national research-to-action organization. Dr. Lara Couturier is a partner at Sova, a higher ed advocacy organization.
Let me tell you about Andrew, a motivated student who graduated high school early with impressive dual-enrollment credits. After attending a private college for a year and taking some time to work, he rekindled his educational ambitions at a community college. With approximately 30 credits remaining for his bachelor’s degree, he applied to an R-1 university, ready to complete his journey.
What should have been a seamless transition became an unexpected challenge. Despite submitting his transfer work in October and regularly checking in with his adviser, Andrew discovered in January—after classes had already begun—that he faced “at least three years of coursework” rather than the anticipated single year to graduation.
This isn’t a rare occurrence or some administrative anomaly. Rather, it is the norm for individuals who aren’t pursuing a four-year degree on the traditional timeline. Higher education talks endlessly about completion and student success while maintaining systems and policies that actively undermine these goals.
Andrew’s story represents a critical opportunity for higher education. While his family successfully advocated for a refund and found another institution that better recognized his prior learning, his experience highlights a fundamental challenge we must address collectively.
The Scale of the Challenge
We have 42 million Americans with some college credit but no degree. We have 200,000 military personnel transitioning to civilian life annually. We have an economy desperately needing upskilled workers. Yet higher education’s response to credit mobility remains anchored in outdated policies and processes that fail to serve today’s students, institutions or workforce needs.
Many institutions have made meaningful progress in supporting diverse student needs through childcare services, flexible scheduling and online options. These are important steps. Now we must extend this same commitment to the academic evaluation processes that directly impact students’ time to degree and financial investment.
The Disconnect
Transfer articulation agreements—where they have been struck—have created valuable pathways, but their implementation often lacks the consistency and transparency students deserve. When agreements include qualifying language without firm commitments, students can’t effectively plan their educational journeys or make informed financial decisions.
The contradiction is striking: We express concern about student debt and extended time to degree, questioning why students take 150 credits when they only need 120 to graduate. Meanwhile, our credit evaluation processes remain opaque, slow and often costly.
The current reality—where students frequently must apply, pay deposits or even enroll before understanding how their previous academic work will be valued—creates unnecessary barriers. We can do better—and, frankly, must. It’s like buying a car and finding out the price after you’ve signed the paperwork. In what other industry would this be acceptable?
The Opportunity
Consider the possibilities if we fully embraced credit mobility as a cornerstone of student success:
Students could make informed decisions about their educational pathways before committing financially.
Institutions could demonstrate their commitment to affordability by recognizing prior learning.
Graduation rates would improve as students avoid unnecessary course repetition.
The workforce would benefit from skilled professionals entering more quickly.
Addressing the Objections
The objections to credit mobility typically fall into three categories:
Faculty workload: Faculty are being asked to do more, and evaluating credits for prospective students can feel like an unnecessary burden. But what if more students could see that their learning had value, that their degree was within reach, that they didn’t have to retake classes they’ve already mastered? This shift in perspective could transform the evaluation process from a burden to an opportunity.
Lost revenue: The focus on enrollments often overshadows the reality that only 50 percent of students who start college actually finish within six years. What if our goal was to expand opportunities so more students could complete their degrees? What if students were taking classes that genuinely added to their experience and built their confidence rather than repeating content they’ve already learned?
Quality concerns: Quality is often cited as justification for delayed evaluation. In reality, transparent evaluation supports faculty’s desire to maintain academic standards. Clear processes allow for informed decisions and data collection that ensures the focus remains on student outcomes.
The AI Opportunity
The emergence of artificial intelligence presents a tremendous opportunity to enhance our credit-evaluation processes—addressing issues of time and cost while creating transparency for data analysis. A new study just released by AACRAO on the role of AI in credit mobility makes a compelling case as to why the technology could help unlock new ways of working. We can harness technology as a powerful tool to support faculty decision-making and administrative resource allocations. AI could:
Identify potential course equivalencies based on learning outcomes.
Highlight relevant information in transfer documentation.
Streamline evaluation processes, allowing human experts to focus on complex cases.
Provide leadership with insights into where credit mobility is operating effectively.
Identify areas needing additional resources or training.
With proper implementation and training, AI can become a tool to achieve our goals of access and completion at scale—reducing both the cost and timeline to graduation.
The Path Forward
If we truly believe in access and completion, then credit mobility must become a shared priority across higher education. This means:
Making course information, learning outcomes and sample syllabi readily accessible.
Expanding recognition of diverse learning experiences, including microcredentials, corporate training, internships and apprenticeships.
Establishing and honoring clear timelines for credit evaluation.
Eliminating financial barriers to credit assessment.
Providing updated articulation and equivalency tables in easy-to-find locations on admissions websites.
Andrew’s experience should be the exception, not the rule. Colleges and universities that embrace this challenge will not only better serve their students but will also position themselves for long-term sustainability in an increasingly competitive landscape. Those that resist change risk becoming irrelevant to the very students they aim to serve and perpetuating the cost and time-to-completion conundrum.
The Call to Action
The question before us isn’t whether credit mobility matters—it’s whether we have the collective will to make it a reality at scale, not just at a handful of institutions, but across systems and all institutions. We must recognize that our students are learning in new ways, on new timelines, and bringing knowledge that evolves faster than our curriculum. Our students deserve nothing less than our full commitment to recognizing their learning, regardless of where it occurred.
So I’ll ask: How committed are you to credit mobility at scale? Your answer says everything about how seriously you take college completion.
Jesse Boeding is the co-founder of Education Assessment System, an AI-powered platform mapping transfer, microcredentials and prior learning to an institution’s curriculum to enable decision-making and resourcing.
