I had thought because light was absorbed and re-emitted but that and scattering ideas are incorrect. See this video for an explanation of why light travels slower through a medium with an index of refraction greater than one.
https://youtu.be/CUjt36SD3h8
https://en.wikipedia.org/wiki/Cherenkov_radiation
There, e.g. gravitational waves will be at c (in a vacuum), but wouldn't photons experience time there?
Edit: I suppose the photons are still actually moving at c