Tom Greene is the National Legislative Director for ExcelinEd in Action. In this role, he manages the organization’s advocacy team and works with leaders and lawmakers from across the states to promote student-centered solutions.
Teachers are at the heart of every thriving society, serving students and families, instilling knowledge, fostering critical thinking and shaping the next generation.
Good teachers are changemakers for kids. According to one study, the top 10% of teachers impart three times as much learning to their students in a single year than the bottom 10% of teachers do.
To best serve students on their educational journeys, schools need a robust teacher workforce. However, headlines since 2020 have repeatedly warned of a nationwide teacher shortage and the detrimental effects reduced teacher staffing could have on educational progress.
While alarms for widespread teacher shortages may have been exaggerated, there is undoubtedly strain at the individual schools and districts where there aren’t enough teachers. When teaching staff is limited, schools often take actions such as limiting course offerings, increasing class sizes or overly relying on substitute teachers. A recent survey by the National Center for Education Statistics found that nearly 25% of schools are coping with teacher shortages by expanding class sizes. This is happening at a time when almost 45% of students were behind in at least one subject at the start of the current school year.
During the 2021-2022 school year, the National Center on Teacher Quality found that teacher turnover rates in 34 states rose by 14%. And fewer students are choosing to become teachers. Between 2008 and 2020, the number of students in educator preparation programs nationwide dropped by about a quarter of a million.
To counter localized shortages and meet the need for a strong education workforce, states can take steps to support and reinforce their teacher pipelines. In 2023, seven states did just that.
In 2022, the teacher workforce in Arkansas was declining. Teacher retention rates fell from 80% during the 2018-2019 school year to 74.4% in the 2022-2023 school year. At the same time, Arkansas had the sixth-lowest average teacher salary in America at $49,438, with a minimum salary of $36,000. Thirty-nine districts in the state saw teacher turnover rates at or above 35%. The teaching profession in Arkansas was in need of immediate policy interventions.
Arkansas Gov. Sarah Huckabee Sanders spearheaded a transformative response to teacher pipeline challenges through the groundbreaking Arkansas LEARNS Act. This comprehensive legislation introduces pivotal measures to attract and retain highly qualified educators, notably raising the minimum teacher salary from $36,000 to $50,000. In a forward-looking move, the Act also guarantees a $2,000 minimum salary increase for veteran teachers, signaling a commitment to valuing and retaining experienced educators. Gov. Sanders’ Arkansas LEARNS Act further fortifies the teacher workforce by offering 12 weeks of paid maternity leave and substantial pay raise incentives of up to $10,000 for exceptional teaching and for teachers in high-demand content areas.
Gov. Sanders’ strategic vision goes beyond immediate workforce challenges, as the Arkansas LEARNS Act establishes a new Teacher Academy Scholarship Program. This initiative covers tuition costs for prospective educators, aiming to remove financial barriers and encourage college freshmen to pursue a teaching career. Prospective educators committed to teaching in designated public schools can also reap benefits from Arkansas LEARNS. These future teachers become eligible for student loan repayment of up to $6,000 annually, further incentivizing teacher retention.
Colorado, like many states, is confronted with specific challenges in its teacher preparation pipeline. A 2022 survey by the Colorado Education Association found that 85% of teachers considered the teacher shortage to be worse than the previous year. Six in 10 educators also indicated they might consider leaving the profession in the near future. The Colorado legislature took teachers’ concerns to heart and advanced new legislation to expand assistance for educator preparation programs.
The first bill introduced in the 2023 legislative session, HB 1001, addressed strains on the teacher pipeline through financial assistance programs. Legislators created a new stipend program to financially assist student teachers as they undergo their required academic residencies. Student teachers in a 16-week academic residency can receive an $11,000 stipend; student teachers in a 32-week academic residency can receive a $22,000 stipend.
The state also expanded its temporary educator loan forgiveness program to include principals and special service providers. The legislation extended the program through July 2023, removed overly strict eligibility requirements and modified applicant prioritization metrics.
In the 2020-2021 school year, Florida faced significant teacher salary challenges, ranking 48th in the nation for teacher pay, with an average of $51,009. That was notably below the national average of $65,293, according to the National Education Association. The state grappled with 5,294 teacher vacancies in January 2023, a concerning number reflecting both a lack of interest in teaching careers and a growing number of educators leaving before retirement age.
Recognizing the urgency of addressing teacher shortages, Florida policymakers responded with innovative measures aimed at attracting high-quality talent to the state’s classrooms. A key initiative was establishment of a Teacher Apprenticeship Program that offers an alternative pathway to becoming a teacher. Prospective educators can attain full certification by starting their education career as paraprofessionals serving as apprentices to mentor-teachers during a multi-year training program. The opportunity for apprenticeships will also contribute to a more diverse and skilled teacher pipeline.
Moreover, the state introduced initiatives, including sign-on bonuses, to incentivize retired first responders and military veterans to join the teaching profession. And to reduce financial barriers for aspiring teachers, Florida waived fees for qualified students in teacher preparation programs and provided scholarships for prospective dual-enrollment teachers.
Florida’s commitment to increasing educator mobility is evident in its participation in the Interstate Teacher Mobility Compact (ITMC), joining nine other states as signatories. This compact allows certified teachers to use their current certifications to teach across state lines, fostering greater flexibility and addressing teacher shortages more effectively.
Policymakers in Florida also pursued historic funding for teacher salaries during the 2023 legislative session. Florida added $252 million toward teacher salaries this year, increasing overall teacher pay spending to $1 billion. Further, the new funding for teachers includes allocations for professional development and instructional supports as well as more flexible pathways into the profession.
At the outset of the 2022-2023 school year, the Nevada State Education Association reported a staggering 3,000 teacher vacancies across the state’s 17 school districts, with the Clark County School District in Las Vegas reporting 1,368 vacancies alone. Experts attribute this problem to pandemic-related layoffs, declining enrollments in teacher preparation programs and increasing attrition rates among teachers.
To confront these issues, Nevada passed legislation in 2023 as part of its teachers and leaders pipeline initiative. The state introduced the Nevada Teacher Advancement Scholarship, offering aid to current teachers pursuing a master’s degree in education. The measure aims to build a skilled and resilient teacher pipeline by providing eligible teachers with scholarships to cover the cost of tuition, registration and mandatory fees.
Teacher shortage concerns were further addressed through teacher reciprocity legislation. As one of the original 10 signatories of the ITMC, Nevada now facilitates the movement of licensed teachers among member states without additional tests, professional training or administrative requirements. By removing these barriers, the ITMC enhances teacher mobility and, in turn, increases the availability of licensed teachers working in member states.
North Carolina has grappled with numerous challenges with its teacher pipeline, notably an insufficient number of teacher preparation programs and difficulties retaining qualified educators. A recent report, The State of the Teaching Profession in North Carolina, documented more than 5,000 teaching vacancies at the beginning of the 2022-23 academic year, signaling an urgent need for comprehensive strategies to address persistent shortages.
In response, North Carolina took action in 2023 to fortify its teacher preparation pipeline and attract skilled educators. The Tar Heel State joined the nationwide trend of investing in pay raises to help retain teachers. The initiative provides raises for all North Carolina teachers, with newer teachers benefiting from a higher percentage for their raises. The legislation also provides for a substantial $4,000 increase in starting teacher pay over the next two years, when it will reach $41,000.
North Carolina also addressed the need for advanced teaching roles, allocating approximately $10 million in recurring salary supplement funds for teachers serving in these capacities. This forward-thinking approach empowers highly effective teachers to advance their careers by providing crucial professional support to beginning teachers.
Beyond financial incentives, North Carolina is actively expanding and improving teacher preparation programs, aligning them with the evolving needs of modern education. Further, the state is enhancing mentorship opportunities and providing ongoing professional development for teachers.
During the 2022-23 school year, Pennsylvania saw an increase in teacher attrition rates, reaching the highest point in 10 years. According to a study by Penn State’s Center for Education Evaluation and Policy Analysis, Pennsylvania’s teacher attrition rate reached 7.7% last year, with 9,600 teachers leaving the workforce. This stark rise in teachers leaving Pennsylvania’s classrooms occurred as fewer teachers are entering the profession. Between 2011 and 2021, the annual number of new teacher certifications dropped from 15,000 to just 6,000.
Pennsylvania lawmakers worked throughout the 2023 legislative session to boost teacher pipelines. In December, Gov. Josh Shapiro signed a school code bill that earmarks $10 million for student teacher stipends. Under the new legislation, student teachers can receive a stipend up to $15,000. As the state confronts the pressing issue of attrition, the stipend program will attract and support aspiring educators, fortifying Pennsylvania’s commitment to educator recruitment.
In 2022, Tennessee school districts grappled with a shortage of approximately 2,200 teachers. A declining trend in new educators graduating from Tennessee’s teacher training programs—dropping by nearly one-fifth over five years—added to the urgency of addressing this issue.
Tennessee lawmakers took transformative action in 2023 to fortify the state’s teacher pipeline and alleviate the persistent shortage. A cornerstone of Tennessee’s teacher pipeline initiatives is the groundbreaking Tennessee Future Teacher Scholarship Act. This visionary program, backed by a $4.5 million pilot initiative, aims to incentivize students to become Tennessee teachers. It covers tuition and fees for eligible college juniors and seniors who commit to four years of teaching in high-need areas or subjects.
Across the educational landscape of 2023, states like Arkansas, Colorado, Florida, Nevada, North Carolina, Pennsylvania and Tennessee demonstrated a collective commitment to fortifying their teacher pipelines.
The policies these states adopted show a dedication to overcoming immediate challenges while laying a foundation for sustained teacher workforce growth. From raising teacher salaries to promoting educator mobility, these states showcase multifaceted approaches that can help address teacher shortages.
As policymakers in other states take stock of their own educator workforces, they may find they, too, need new and innovative policies to address localized shortages. States leaders will want to explore various policy options based on their specific education environments. These model policies on teacher apprenticeships and advanced incentive programs can help state legislators make informed policy decisions to boost their teacher pipelines. These model policies provide strategies for states to shape a resilient and adaptable teacher pipeline, ensuring the success and well-being of students across the nation.
To read more posts from this series, visit From Policy to Action: A Series Looking Back at 2023 Education Legislation.
