Expanding Opportunity: Why Workforce Pell Must Work for All Learners

On April 8, 2026, the Center for Employment Opportunities (CEO) submitted a public comment to the U.S. Department of Education on its proposed Workforce Pell Grant regulations. For the first time, students can use Pell Grants to fully or partially cover the cost of short term workforce development courses. 

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Workforce Pell has the potential to transform lives, but only if it is implemented in a way that truly expands access to high-quality training for those who need it most. For the more than 100,000 formerly incarcerated people CEO has served since 1996, access to education and training is an opportunity to chart a pathway to stable employment, economic mobility, and stronger communities.

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The Promise of Workforce Pell

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Workforce Pell Grants are designed to expand access to short-term, high-quality credential programs that prepare people for in-demand jobs. For individuals returning from incarceration, these programs can be life-changing.

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CEO sees this every day. Through partnerships with training providers across the country, participants gain skills in industries like commercial driving, welding, and construction trades. Individuals who complete credential programs are more likely to secure long-term employment and earn higher wages.

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Workforce Pell could significantly scale these opportunities by opening doors for thousands more individuals ready to contribute to the workforce. However, key barriers threaten to limit that impact.

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Where the Proposed Rules Fall Short

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While CEO strongly supports accountability and quality standards, the current proposal risks excluding many of the very programs that would make Workforce Pell effective, especially courses serving formerly incarcerated learners.

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Here are three areas where adjustments are urgently needed:

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1. Expanding Partnerships to Strengthen Training Programs

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The proposed 25% cap on partnerships between accredited institutions and unaccredited providers restricts the reach and impact of Workforce Pell Grants. 

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Many community-based organizations—especially reentry providers—are not Title IV accredited, even though they play an essential role in helping individuals succeed in the workforce. They offer case management, immediate on the job and paid training, job readiness training, and support navigating barriers like housing, transportation, and food access.

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CEO’s partnership in Tulsa, Oklahoma is a prime example of strong collaboration between eligible and ineligible organizations. By working alongside local providers and an accredited technical college, 135 formerly incarcerated individuals accessed training last year. Nearly 80% completed their programs and secured employment in related fields.

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Raising the partnership cap to 49% would:

• Align with existing Pell program standards
• Reduce strain on accredited institutions
• Ensure participants receive the full spectrum of support needed to succeed

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Without this change, Workforce Pell Grants risks underutilization and weaker outcomes.

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2. Creating a Pathway for High-Quality, Unaccredited Providers

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Many proven workforce programs, funded through initiatives like the Workforce Innovation and Opportunity Act, SNAP Employment and Training, and Registered Apprenticeships, are currently excluded because they lack Title IV accreditation, even though they receive federal funding and have strong, data backed outcomes. 

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CEO urges the Department to create an expedited pathway to Workforce Pell eligibility for federally-funded training providers. Doing so would:

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• Recognize alternative measures of program quality
• Expand the pool of eligible training options
• Reflect congressional intent to include nontraditional providers

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If Workforce Pell is meant to meet labor market demand, it must include the providers already doing that work effectively.

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3. Measuring Success in a Way That Reflects Real Progress

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The proposed value-added earnings metrics may not accurately capture the success of programs serving formerly incarcerated individuals. Potential students who are justice-impacted often face systemic barriers that impact wages and employment trajectories.Standardized metrics risk creating unintended consequences like discouraging programs from enrolling individuals who need support the most.

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Instead, CEO recommends:

• Using performance metrics from federally funded reentry and workforce programs
• Measuring pre- and post-enrollment wage gains

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For example, CEO’s Colorado program saw participant earnings increase by nearly 50% within two quarters and by nearly 680% for those facing the highest barriers to employment.

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A Workforce Ready to Contribute

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Formerly incarcerated individuals represent a significant and often overlooked segment of the nation’s workforce. They are ready to work, build careers, and support their families. But without thoughtful implementation, it could fall short, limiting access, excluding effective providers, and overlooking the very populations it aims to serve.

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The Path Forward

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With targeted adjustments, Workforce Pell can deliver on its promise:

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• Expand access to high-quality, short-term credentials
• Strengthen partnerships that drive successful outcomes
• Ensure equitable opportunities for learners facing systemic barriers

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CEO is encouraged by the Department of Education’s leadership and commitment to expanding workforce opportunities. We believe that with these changes, Workforce Pell can become a powerful tool for building a more inclusive, skilled, and resilient workforce.

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