The passage of the Every Student Succeeds Act in 2015 removed the federal mandate for teachers to be highly qualified, giving states flexibility in hiring. This shift, coupled with a shortage of trained educators, has prompted some states, like Texas, to permit the hiring of unlicensed teachers. As a consequence, a majority of new teachers hired in Texas schools during the 2023-2024 academic year were unlicensed, marking a significant increase from previous years. This trend is particularly pronounced in rural and small-town schools.
Research indicates that these relaxed hiring practices can detrimentally affect students, particularly Black students, English learners, and those in rural areas. Despite varying state requirements for teaching licenses, most demand at least a bachelor’s degree, along with hours of student teaching and passing a licensure exam. While hiring unlicensed teachers may address immediate staffing needs, studies show it can lead to academic setbacks in subjects like middle and high school mathematics, equivalent to missing several months of instruction annually.
Why does it matter?
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Furthermore, the turnover rate among unlicensed teachers is notably higher than their licensed counterparts, disrupting schools and potentially lowering student performance. This turnover is costly, with districts spending thousands to recruit and train replacements.
Moreover, Texas’ law allows unlicensed teachers to earn comparable salaries and benefits to licensed educators without meeting the same standards, removing incentives for investing in formal teaching qualifications. This practice could further diminish the pool of qualified teachers over time. Despite legal mandates ensuring equal educational opportunities for all students, the prevalence of unqualified teachers in Texas disproportionately impacts Black and bilingual students, as well as those in rural communities.
What’s the next step?
Three policy adjustments could lead to improved student achievement, a larger pool of qualified teachers, enhanced government transparency, and reduced costs for taxpayers.
Since 1999, Texas law has mandated that schools inform parents and guardians when their children are taught by teachers who are “inappropriately certified or uncertified.” However, a recent state law now permits school districts to exempt themselves from this transparency requirement, with nearly 400 districts opting out by March 2024, as per state data analysis. Reversing this exemption could empower parents to ensure districts prioritize hiring licensed teachers.
One potential strategy to mitigate the educational impact of employing unlicensed teachers is to establish a limit on their tenure before requiring licensure. Before 2015, districts had to seek an emergency permit from the state for unqualified teachers when they couldn’t fill a teaching vacancy with a licensed educator. These permits were valid for one year. Implementing a similar time constraint for current hires of unlicensed teachers could similarly benefit educational standards.
Under Texas law, school districts have the authority to vary teacher salaries based on their qualifications. Implementing tiered pay scales across most districts, where fully qualified teachers earn more than those without licenses, could incentivize unlicensed teachers to pursue full training and licensure.
Furthermore, rural and small-town schools currently face challenges in attracting highly qualified teachers due to competition from wealthier, larger districts. State funding that differentiates and enables these districts to offer competitive salaries for qualified teachers could help balance educational opportunities statewide.
These policy adjustments collectively aim to boost the number of highly qualified and committed teachers, particularly in rural areas, thereby potentially reducing costs for districts while ensuring all students receive the high-quality education mandated by law.
