Cherri McKinney knew her decision not to pursue a college degree meant she would have to work harder to prove herself. For decades, she’s been doing just that in her career — where she’s worked as a bookkeeper, an aesthetician, a small-business owner, and now, as a benefits and leave specialist in Human Resources for Colorado state government.
Her diverse experiences could appear unconventional on a resume, leaving hiring managers uncertain about her qualifications. However, her recent process of applying for jobs demonstrated how focusing on skills over credentials has benefitted her career.
“I’ve had to be scrappier,” McKinney explained, noting how the lack of a college degree or a network of professional and personal support produced a “resourcefulness and self-motivating factor” in order to figure things out on the job. She put that same resourcefulness to work when applying for jobs.
The result was not just the success of getting an offer with the Colorado state government but also having her pay reflect the decades of experience she has gained in various roles over the years. McKinney also benefitted directly from Colorado’s shift to skills-based hiring, which seeks to expand opportunities for workers in the state and diversify the workforce.
Colorado’s leading the way with skills-based hiring
Since 2019, the state has been experimenting with promoting skills-based practices in the workforce. In 2022, Gov. Jared Polis issued an executive order formally transitioning the state to skills-based hiring. Colorado has adopted a multipronged approach that serves as a model for other states looking to broaden their workforce, including a comprehensive framework for measuring success by building infrastructure for skills-based hiring, tying the goals to existing complementary initiatives like work-based learning and apprenticeships, and investing resources to support the work.
To build on the initial momentum, Colorado has worked with Opportunity@Work to refine next steps in supporting hiring managers to incorporate more skills-first talent practices. The state is a participant in Opportunity@Work's STARs Public Sector Hub’s Transformers in the Public Sector state cohort.
“The current labor market is outdated, and jobs are highly inaccessible, especially for individuals skilled through alternative routes (STARs), instead of a bachelor’s degree — but we don’t have to wait for Washington to fix it,” said Blair Corcoran de Castillo, vice president of policy at Opportunity@Work. “Change starts in the states, and Colorado is leading the way. Through multiple executive orders, the state is proving that a skills-first talent system isn’t just possible — it’s already happening.”
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Equipping state agencies to implement skills-based hiring
As states modernize workforce systems, Colorado is leading the way in skills-based hiring. By prioritizing skills over degrees, the state is reshaping access to economic opportunity through coordinated efforts across government, education, and business. Its approach offers a model for others seeking a more inclusive and effective workforce.
“[A]s the global economy rapidly evolves, we must rethink the way we educate students and our workforce,” wrote Polis in an essay for the Center on Reinventing Public Education’s 2023 “State of the American Student” report. “A fragmented approach — where high schools, postsecondary institutions, and employers all work in their own silos shortchanges everyone.”
The executive order that the governor signed in 2022 triggered steps that created accountability for state agencies by setting goals for their hiring processes and allocating money to train managers, create apprenticeships, and shift to skills-based workforce norms.
According to the executive order, by 2025, 100% of eligible positions should reflect alternatives to education requirements. Additionally, work-based learning programs — where employees with some skills can learn more on the job — will be integrated into departments with high vacancy rates.
The state isn’t working alone in figuring out how to make all these changes, either. Opportunity@Work's Transformers in the Public Sector state cohort has provided additional support as the state thinks about not only crafting policy changes but also implementing a regional strategy for workforce development.
Training materials that helped establish baseline skills and guidelines for hiring were created and disseminated through state agency HR departments, allowing each department to tailor materials to its specific needs.
“Some hiring managers love degrees because it’s a simple check-the-box requirement,” explained Jennifer Banta, who works in Colorado’s Department of Personnel and Administration. “When we asked managers to think in terms of skills, they defaulted to listing job titles, which created another barrier for candidates. What we truly needed to do is clearly delineate skills.”
From templates for job descriptions to thought processes that help hiring managers approach employment in a different way, the State of Colorado, with support from Opportunity@Work, continues to equip hiring managers with the resources needed to shift to skills-based hiring.
Investing in training more workers
Resources weren’t only created for hiring managers. In September 2023, Polis issued another executive order that expanded apprenticeships and work-based learning opportunities. At the time, there were two unemployed Coloradans for every open job in the state, but applicants’ skills often didn’t match job requirements. “As an employer of choice, the State of Colorado is modeling the importance of apprenticeships and adapting to our workforce’s changing needs,” read the executive order.
“The order … directs every department to implement at least two new work-based learning programs by Dec. 30, 2025, such as apprenticeships, internships, or fellowships,” reported Colorado Politics. “By June 30, 2025, 10 new work-based learning programs must also be created for agencies with high vacancy rates or multi-department positions.”
Finally, the Colorado General Assembly created a task force that brought together partners from schools, postsecondary pathways, and industry. Its mission was to “develop and recommend policies, laws, and rules to support the equitable and sustainable expansion and alignment of programs that integrate secondary, postsecondary, and work-based learning opportunities.”
“Millions of STARs are eager to learn, grow, and contribute — if given the chance. Colorado’s commitment to skills-first hiring proves that when we recognize and invest in their potential, we can build a stronger economy for all,” said Corcoran de Castillo.
For more information on this initiative and skills-based hiring via the public sector and in Colorado, read the case study, “How Colorado is Transforming its Workforce through Skills-Based Practices,” published by Opportunity@Work and the National Governors Association as part of the Skills in the States project.
Opportunity@Work is supported by Stand Together Trust, which provides funding and strategic capabilities to innovators, scholars, and social entrepreneurs to develop new and better ways to tackle America’s biggest problems.
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