Report on Teacher Licensure Policy: Biases and Barriers to Diversifying the Workforce — Virginia
Summary
Report of the Virginia Department of Education to the Governor and the General Assembly of Virginia on teacher licensure policy, with a cover letter dated January 5, 2022 from the Acting Superintendent of Public Instruction. The study was requested by Senate Joint Resolution No. 15 (2020), and the report, dated December 2021, was prepared by Virginia Commonwealth University's School of Education and the L. Douglas Wilder School of Government and Public Affairs. Its executive summary names six barriers to entering and remaining in the profession, including potential bias in teacher evaluations, bias in licensure assessments, and challenges in communication and processing, and lists recommended actions for each.
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REPORT OF THE VIRGINIA
DEPARTMENT OF EDUCATION
Virginia Teacher Licensure
Policy: Biases and Barriers
to Diversifying the Workforce
(SJR 15, 2020)
TO THE GOVERNOR AND
THE GENERAL ASSEMBLY OF VIRGINIA
SENATE DOCUMENT NO. 6
COMMONWEALTH OF VIRGINIA
RICHMOND
2022
January 5, 2022
The Honorable Ralph S. Northam, Governor
Members of the Virginia General Assembly
Commonwealth of Virginia
Richmond, VA 23219
Dear Governor Northam and Members of the General Assembly:
I am pleased to submit the enclosed report on Virginia Teacher Licensure Policy: Biases
and Barriers to Diversifying the Workforce (SJR 15).
During the 2020 Session, the Virginia General Assembly approved Senate Joint
Resolution No. 15 requesting the Department of Education to study the teacher licensure process
and the assessment requirements for any inherent biases that may prevent minority teacher
candidates from entering the profession. The Department of Education completed its study in
partnership with Virginia Commonwealth University’s School of Education and the Wilder
School and is submitting to the Governor and the General Assembly an executive summary and a
report of its findings and recommendations for publication.
If you have any questions or require additional information, please do not hesitate to
contact Maggie M. Clemmons, Director of the Office of Licensure and School Leadership, at
Maggie.Clemmons@doe.virginia.gov, or (804) 371-2476.
Sincerely,
Dr. Rosa S. Atkins
Acting Superintendent of Public Instruction
RSA/mmc
Enclosure
PO Box 2120 Richmond, VA 23218 | 101 N. 14th Street Richmond, VA 23219 | 1-800-292-3820 | doe.virginia.gov
Virginia Teacher Licensure Policy: Biases
and Barriers to Diversifying the Workforce
(SJR 15)
December 2021
Prepared by the:
VIRGINIA COMMONWEALTH UNIVERSITY
SCHOOL OF EDUCATION
L. DOUGLAS WILDER SCHOOL OF
GOVERNMENT AND PUBLIC AFFAIRS
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Virginia Teacher Licensure Policy: Biases and Barriers to
Diversifying the Workforce (SJR 15)
December 2021
Table of Contents
I. Executive Summary 3
II. Overview of the Study on Teacher Licensure Policy 6
III. The Challenge of Recruiting and Retaining Teachers of Color in Virginia 7
IV. Comparative State Analysis: Review of Statues, Regulations and Data 12
V. Inherent Bias and Proposed Solutions 18
VI. Conclusion 30
References 32
Appendix 35
Study Team
VCU School of Education VCU Wilder School of Government &
Public Affairs
– Andrene Jones-Castro, Ph.D.
– Adria Hoffman, Ph.D. – Brittany Keegan, Ph.D.
– LaRon Scott, Ed.D – Rosa Krewson, Ph.D.
– Dean Andrew Daire, Ph.D. – James Burke, Ph.D.
– Linda Pierce, M.B.A.
– Chloe Carter, M.P.A.
– Dean Susan T. Gooden, Ph.D
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I. Executive Summary
In 2017, the Task Force on Diversifying Virginia’s Educator Pipeline noted the growing shortage of
effective educators entering and remaining in the profession as well as particular barriers to entry for
teachers of color. In 2018, Virginia Workforce data shared at the Teacher Retention Summit indicated
significantly higher attrition rates of teachers of color than white teachers. These trends are of particular
concern in Virginia, where the population has, and will continue to, become increasingly diverse. As a
follow up to this prior work, the current study examined barriers preventing teachers of color from
entering the profession. Specifically, through an examination of teacher licensure polices and
regulations in Virginia, we asked: what might yield higher attrition rates of teachers of color when
moving from probationary to continuing contract status, as well as provisional to full/professional
licensure? In other words, we sought to explore biases and barriers in the teacher pipeline, interrogating
these challenges through new policy lenses.
We found barriers that exist at both the recruitment or entry stage and critical retention stage, such as
years three to five, when teachers move from probationary to continuing contract status or provisional
to professional licensure status. A multi-pronged approach across the General Assembly, Virginia
Department of Education (VDOE), and school divisions is needed to reduce bias in Virginia’s teacher
licensure policy and, ultimately, diversify the teacher workforce. We recommend the following policy
and process actions to reduce six identified barriers to entering and remaining in the profession:
Barrier 1: Potential Bias in Teacher Evaluations
● Invest in a statewide technical support center that assists local education agencies (LEAs) to
conduct analyses of school- and LEA-based minority teacher recruitment and retention and anti-
bias training.
● Pursue transparent policy language to avoid unclear language in teacher evaluation guidelines
that lead to multiple interpretations and inconsistencies in how teachers are evaluated by
school or district-level supervisors.
Barrier 2: Potential Bias in Supervision Requirements
● Fully fund the Standards of Quality (SOQs) to include the establishment of a unit within the
VDOE to develop guidelines for teacher leadership and mentorship programs, as well as a
statewide principal mentoring program.
● As noted in Barrier 1, pursue transparent policy language to avoid unclear language in teacher
evaluation guidelines that lead to multiple interpretations and inconsistencies in how teachers
are evaluated by school or district-level supervisors.
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Barrier 3: Use of Subjective Language
● Reevaluate and revise subjective policy language in specific regulations like The Licensure
Regulations for School Personnel or The Regulations Governing the Review and Approval of
Education Programs, which contain language such as “moral character” or “professionalism”
that can potentially impact marginalized populations.
● Develop a task force to combat bias and subjectivity and to address reported incidents
manifested through biased evaluative policies
Barrier 4: Disparities in Opportunities
● Expand financial benefits:
○ Eliminate the gap between the average Virginia worker’s salary and teachers’ salaries by
increasing teacher salaries over the next three years.
○ Expand Virginia Teaching Scholarship Loan Program (VTSLP) and support other service
scholarship and loan forgiveness programs to cover or reimburse a portion of tuition
costs in exchange for teaching commitment (5 years)
○ Establish a Teacher of Color Education Scholarship of Virginia (TCES-VA) program to
increase the number of minority teachers in Virginia to better reflect the state’s diverse
population
○ Connect National Board Certification to Schools Serving Students of Color: Teachers who
work in historically underserved schools are more likely to be teachers of color. To
recruit and retain them, the state should designate funds for additional annual bonuses
for those teachers who hold National Board Certification and work in these buildings.
● Expand the line item in the General Assembly to fund teacher residency programs: Providing
stipends and tuition support to prospective teachers creates opportunities for teachers of color
to receive stronger teacher preparation while reducing the financial burden, creating greater
teacher retention and effectiveness once they complete their programs.
● Create guidelines for a statewide comprehensive teacher induction model for all teachers in
years one through three. Teacher induction models should be jointly funded by the state and
LEAs.
● Create sustainable working conditions: To better retain all teachers, but particularly teachers of
color who serve in schools with greater student and staffing needs, a long-term strategy to
improve working conditions is necessary. These recommendations include:
○ Examine educational environments or school working conditions, the unique work
demands, work responsibilities (formal and informal), and workload manageability of
teachers of color
○ Establish an average teaching time of 60% of the total contract hours;
○ Establish average teaching percentage targets that correspond to the career ladder/
teaching experience;
○ Reduce the student-to-teacher ratio;
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○ Eliminate the support staff cap to provide greater instructional and behavioral support
to teachers of record; and
○ Provide racial justice-oriented professional development to support teachers of color
Barrier 5: Bias in Licensure Assessments
● The Virginia Board of Education (VBOE) should evaluate the existing assessment requirements
for licensure, and act to eliminate those that are not absolutely essential, align assessment
requirements with skills and competencies of high-quality teaching, and provide candidates
multiple types of assessment opportunities to demonstrate their skills (Recommended by the
Advisory Committee on Teacher Shortages, 2017).
○ In addition, the VBOE should reevaluate assessment passing scores recently raised and
disproportionately impacting Black and Hispanic candidates (such as the VCLA).
○ Given that the VDOE may grant exceptions to recommended teachers who failed to pass
licensure exams, we recommend that the VBOE consider alternate options to assess
teacher performance, specifically, classroom-based teaching assessments as alternative
options to current licensure assessments as a singular approach.
○ Expand funding to pay for licensure exam costs currently paid by teacher candidates of
color enrolled in teacher preparation programs and by provisionally licensed teachers of
color
○ Expand programs like the "Competitive Grant for Praxis and Virginia Communication and
Literacy Assessment Assistance to Support Diversity Among Provisionally Licensed
Teachers Seeking Full Licensure in Virginia" program to cover testing costs for all
teachers of color.
Barrier 6: Challenges in Communication and Processing
● Create a clear and streamlined licensure website that clarifies what requirements are needed
based on the route to licensure and endorsement(s) sought. This reduces the disproportionate
impact of inaccessible information on prospective teachers of color who may not have a
personal or professional network able to provide this information.
● Create an online licensure application portal that integrates all forms and payment
information, reducing the possibility of delayed mail, user error, and submission of outdated
documents.
○ Within this portal, teachers should be able to track professional development points
earned and additional credentialing/endorsement options.
○ The portal should have sharing/sending options for EPP or division leadership to review
and approve documents before the VDOE review process.
● Improve language around "comparable" requirements and what specific endorsements are
required when out of state teachers apply for positions in Virginia, but hold endorsements that
are not comparable at the subject area or grade level. Virginia offers a number of comparable
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endorsements, but all may not translate when out-of-state candidates apply for positions in
Virginia.
● Invest in implementation capacity to provide technical support to local divisions, provide clear
guidance, ongoing training, and oversight to ensure divisions follow consistent processing
guidelines and are adequately supported:
○ Increase VDOE Licensure Office staffing to reduce the amount of time between
submission and notification of licensure application status.
○ Invest in a statewide technical support center that strengthens and supports a diverse
teacher pipeline and career ladder (e.g.- minority teacher leadership preparation,
mentoring, coaching, and advanced/ leadership credentialing supports). This support
should also assist LEAs develop innovative grow-your-own programs, EPP-LEA-VDOE
partnerships, and analysis of school- and LEA-based minority teacher recruitment and
retention.
● Develop specific policy guidance to support recruitment and retention of teachers of color:
○ Create an adaptive data system to track teachers’ licensure status; and
○ Develop performance metrics to achieve workforce diversity goals, as well as
accountability for LEAs.
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II. Overview of the Study on Teacher Licensure Policy
The 2020 Virginia General Assembly approved Senate Joint Resolution No. 15 that requests the
Department of Education to study the teacher licensure process and the assessment requirements for
any inherent biases that may prevent teachers of color candidates from entering the profession. Local
school divisions throughout the Commonwealth are struggling to recruit and retain high quality teachers
of color. The teacher workforce is largely racially homogeneous as white teacher comprise
approximately 80% of the workforce, while public elementary and secondary school populations
continue to grow in both size and racial/ethnic diversity.
This growth demands careful consideration of policy changes to address teacher shortages and the lack
of teacher diversity in order to best serve the needs of all public-school students. In light of recent
supportive findings such as a study published by the Institute of Labor Economics that concludes low-
income black students who have at least one black teacher in elementary school are significantly more
likely to graduate high school and consider attending college, it is more important than ever to identify
potential inherent biases within policies and work to eliminate barriers to teacher licensure to ensure
student success.
The General Assembly requested the Department of Education to complete a study and submit to the
Governor and the General Assembly an executive summary and a report of its findings and
recommendations. The Resolution states it is imperative to identify and eliminate any barriers to a
sufficient and diverse teacher workforce in the Commonwealth. The Resolution additionally requests
that the Department of Education study the teacher licensure process and the assessment requirements
therein for any inherent biases that may prevent teachers of color candidates from entering the
profession, and to review all relevant statutes, regulations, and data.
Virginia Commonwealth University’s School of Education and L. Douglas Wilder School of Government
and Public Affairs conducted a comprehensive review of policy, process, and assessments associated
with teacher licensure and the impact on teachers of color. We began by conducting a close read of the
Code of Virginia, then conducted a comparative analysis of teacher licensure policy across Virginia,
Georgia, Maryland, North Carolina, South Carolina, and Tennessee, and facilitated interviews and focus
groups to triangulate findings and inform our recommendations.
The study team interviewed current and former teachers who self-identified as Black, Latinx, Asian, or
multiracial as well as focus groups of licensure officers who work in school divisions and university-based
teacher preparation programs. Participants were recruited from the DC, Richmond, Roanoke,
Charlottesville, and Tidewater metro areas, as well as rural areas spanning southwest to northeastern
regions. An initial questionnaire captured important demographic information as well as the
school/division context and work experience of teachers. We used this information to recruit broadly
and strategically across contexts. Semi-structured interviews allowed the study team to ask pre-
determined questions to all participants, while following their conversational leads. All questions were
open-ended, providing the participants opportunities to share their varied experiences with obtaining or
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facilitating Virginia teacher licensure processes. For example, we asked teachers about division support
and their licensure experience and how they gathered information when initiating or renewing
licensure. The open-ended questions revealed not only the purely demographic data captured on a
survey (e.g.- provisionally licensed, professional licensed, race/ ethnicity, etc.), but the nuanced ways
teachers of color experienced their route to licensure and experience in the profession. The participants
represented multiple pathways to licensure and careers spanning those currently completing student
teaching requirements to those with over 20 years of experience in the field.
The semi-structured interview protocol for EPP and school division licensure officers revealed examples
of administrative burden within the process, as well as particular areas in which teacher candidates of
color and those whose first language is not English experienced bias within licensure and assessment
policies. Licensure officers who participated in the interviews represented some of the largest and
smallest school divisions in Virginia, as well as urban, suburban, and rural communities. Focus groups of
EPP licensure officers were comprised of participants from two Minority Serving Institutions (HBCUs &
HSIs), private and public institutions, as well as small liberal arts, regional, and research I designated
institutions.
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III. The Challenge of Recruiting and Retaining Teachers of
Color in Virginia
Virginia created and implemented legislation, policies, and programs to focus their efforts specifically on
teachers of color in the US, reflecting the growing population of students of color (See Appendix A). In
the following sections, we report specifically on Virginia’s workforce/ student demographics, attrition
and retention rates, and barriers to licensure among teachers of color.
Teacher Diversity Index
The Teacher Diversity Index is a way to rank states on the percentage-point difference between teachers
of color and students of color. The table below shows the racial/ethnic composition of teachers in
Virginia and five comparison states: Georgia, Maryland, North Carolina, South Carolina, and Tennessee.
Racial/Ethnic Demographic of Teachers
Asian Black Latino Multiracial Native Pacific White
American Islander
Georgia 1.3% 25.6% 2.5% 1.7% 0.2% 0.0% 68.8%
Maryland 3.6% 17.3% 3.0% 1.0% 0.2% 0.5% 74.4%
North 0.4% 14.7% 3.9% 2.5% 1.5% + 77.0%
Carolina
South 2.1% 12.7% 3.4% 2.4% * + 79.3%
Carolina
Tennessee 0.4% 11.5% 1.3% 0.6% 0.1% 0.1% 83.9%
Virginia 1.5% 11.3% 2.2% 2.0% * + 82.4%
*- Reporting standards not met
+ Rounds to zero
Source: Education Trust. Retrieved from https://edtrust.org/educator-diversity/#US
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Next, we consider the racial/ethnic composition of students in each of these states. This is presented in
the table below.
Racial/Ethnic Demographic of Students
Asian Black Latino Multiracial Native Pacific White
American Islander
Georgia 4.3% 36.5% 16.2% 3.8% 0.2% 0.1% 38.9%
Maryland 6.5% 34.0% 16.5% 4.5% 0.3% 0.1% 38.2%
North 3.3% 25.3% 17.5% 4.3% 1.2% 0.1% 48.3%
Carolina
South 1.6% 33.6% 9.5% 4.1% 0.3% 0.1% 50.8%
Carolina
Tennessee 2.4% 23.7% 10.9% + 0.4% 0.2% 62.4%
Virginia 7.0% 22.4% 15.7% 5.5% 0.3% 0.2% 48.9%
*- Reporting standards not met
+ Rounds to zero
Source: Education Trust. Retrieved from https://edtrust.org/educator-diversity/#US
10
We used the information in each of the above tables to compare the percentage-point difference
between teachers of color and students of color. This information is presented in the table below.
Percentage-Point Differences
Percent of Teachers of Percent of Students of Difference
Color Color (% Teachers - % Students)
Georgia 31.2% 61.1% -29.9%
Maryland 25.6% 61.8% -36.2%
North 23.0% 51.7% -28.7%
Carolina
South 20.7% 49.2% -28.5%
Carolina
Tennessee 16.1% 37.6% -21.5%
Virginia 17.6% 51.4% -33.8%
Source: Education Trust. Retrieved from https://edtrust.org/educator-diversity/#US
By looking at the percentage-point difference between the percent of teachers of color and the percent
of students of color, there are clear disparities. Neither Virginia nor any of the comparison states have
percentages that are relatively aligned, though disparities are greater in some states than others.
Among these six states, the ranking from lowest disparity to highest disparity is as follows:
1. Tennessee (-21.5%)
2. South Carolina (-28.5%)
3. North Carolina (-28.7%)
4. Georgia (-29.9%)
5. Virginia (-33.8%)
6. Maryland (-36.2%)
Virginia ranks in the lower half of these six states, indicating that improvements are needed. We can
also take a look at which races/ethnicities in Virginia are most impacted by disparities. This information
is shown in the table below.
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Percentage-Point Comparison of Virginia’s Teachers and
Students
Asian Black Latino Multiracial Native Pacific White
American Islander
Teachers 1.5% 11.3% 2.2% 2.0% * + 82.4%
Students 7.0% 22.4% 15.7% 5.5% 0.3% 0.2% 48.9%
Difference -5.5 -11.1 -13.5 -3.5 * -0.2% 33.5%
(Teacher % -
Student %)
*- Reporting standards not met
+ Rounds to zero
Source: Education Trust. Retrieved from https://edtrust.org/educator-diversity/#US
White students are the only group in which there is a positive difference (i.e. there is a higher
percentage of white teachers than white students). Students of color do not see themselves reflected in
the teachers that serve them to the extent that white students do, with Black and Hispanic students
being the least represented. In the case of Native Americans, we are not able to know if a disparity exists
as reporting standards were not met when collecting teacher data. As decisions are made and policies
are considered, prioritization should be given to demographic groups of teachers who experience the
most disparities.
Attrition and Retention Rates Among Teachers of Color
Teacher turnover refers to full time teachers who transfer to other schools or exit the field
altogether (See Appendices B and C). This also accounts for school closings and layoffs around
the state and teachers who work in more than one school division. Teachers in Virginia exit at
higher rates than they are transferring to other school divisions. Over a decade (2008-2018),
new teachers of color in Virginia represented 30% of all new teachers; however, by their third
year of teaching, only 67% of Virginia’s Black and Hispanic teachers remained in the profession,
whereas 72% of white teachers remained (Miller, 2018) (see Appendix D). Prior efforts to
diversify Virginia’s teacher workforce focused on alternate routes to licensure, though Virginia’s
provisionally licensed teachers left the profession at 18% in year three and 14% in year five,
compared to 11% for traditionally prepared teachers at both years (Miller, 2018). Recruiting
teachers of color through the provisional licensure process may exacerbate disparities by
yielding greater attrition rates.
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Barriers to Licensure: What We Already Know
A 2017 report from the Task Force on Diversifying Virginia’s Educator Pipeline identified three primary
barriers that prevent people of color from becoming teachers:
● Barrier 1: The length and cost of the traditional teacher preparation pathway is disproportionate
to salary, which is particularly burdensome for first-generation college students and low-income
students – who are often teachers of color.
● Barrier 2: Students are not exposed to or made aware of pathways into the profession early
enough, nor are non-teaching majors aware of potential pathways into the profession.
● Barrier 3: The provisional licensing route is underutilized, and teachers of color who are
provisionally licensed in Virginia obtain full licensure at lower rates than their peers.
We can also consider what barriers may prevent teachers of color from moving from a provisional to a
professional license or renewing their Virginia teaching license. This is particularly important given the
aforementioned findings that Virginia teachers who identify as Black or Hispanic exit the teaching
profession at significantly higher rates than those who identify as white (Miller, 2018). The points at
which they exit mark the years (3 and 5) when Virginia teachers move from provisional to professional
licensure and/or to continuing contract status.
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IV. Comparative State Analysis: Review of Statues,
Regulations and Data
Licensure Reciprocity
Requirements to become a teacher vary from state to state, therefore, teacher license reciprocity
agreements are formal agreements made between states to recognize teaching credentials issued by
another state. The National Association of State Directors of Teacher Education and Certification
(NASDTEC) is a professional membership organization representing state departments of education and
professional standards boards/commissions that are responsible for the preparation, licensure, and
discipline of K-12 educational personnel. Lynch (2019) reports that, as of September 2017, forty-six
states and the District of Columbia have signed the NASDTEC Interstate Agreement. Reciprocity
agreements allow states to work through differences in licensing systems to manage license transfers
and staff vacant teaching positions with qualified applicants, as long as teachers meet the state’s
requirements (Evans et al., 2020; Lynch, 2021).
Virginia is a participant in the NASDTEC Interstate Agreement on licensure reciprocity. Key components
of Virginia’s reciprocity regulation include:
Part . An individual coming into Virginia from any state may qualify for a Virginia teaching
license with comparable endorsement areas if the individual (i) has completed a state-approved
teacher preparation program through a regionally accredited four-year college or university or
(ii) holds a valid out-of-state teaching license (full credential without deficiencies) that shall be in
force at the time the application for a Virginia license is made. An individual shall meet licensure
requirements set forth in the Code of Virginia. An individual seeking licensure shall establish a
file in the Virginia Department of Education by submitting a complete application packet that
includes official student transcripts. Unless exempted by the criteria in this chapter, professional
teacher's assessment requirements prescribed by the Virginia Board of Education shall be
satisfied.
Part B. An individual coming into Virginia will qualify for a Virginia teaching license with
comparable endorsement areas if the individual holds an active national certification from the
National Board for Professional Teaching Standards (NBPTS) or a nationally recognized
certification program approved by the Virginia Board of Education.
Part C. Licensure by reciprocity is provided for any spouse of an active duty member of the
Armed Forces of the United States or the Commonwealth who has obtained a valid out-of-state
license, with full credentials and without deficiencies, that is in force at the time the application
for a Virginia license is received by the Virginia Department of Education. Each such individual
shall establish a file in the Virginia Department of Education by submitting a complete
application packet, which shall include official student transcripts. No service requirements or
licensing assessments shall be required for any such individual.
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Part D: Licensure by reciprocity is provided for individuals who have obtained a valid out-of-
state license, with full credentials and without deficiencies, that is in force at the time the
application for a Virginia license is received by the Virginia Department of Education. Each such
individual shall establish a file in the Virginia Department of Education by submitting a complete
application packet, which shall include official student transcripts. No service requirements or
licensing assessments shall be required for any such individual.
Reciprocity agreements improve Virginia’s ability to recruit more teachers of color by attracting out-of-
state candidates by lessening some of the challenges associated with moving across state lines.
However, our analysis suggests that improved clarity in the regulation regarding “comparable
endorsement areas” (Part A) and eliminating verbiage on “full credential without deficiencies” can add
greater transparency in the code, particularly for teachers of color who possess provisional or temporary
licenses.
The following table illustrates key requirements across comparable states:
Comparative Analysis: Requirements for Licensure Reciprocity
for Out-of-State Teachers
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Licensure Process: Teacher Licensure Across States
Our policy examination included a comparative analysis of the licensure process across several states-
Georgia, Maryland, North Carolina, South Carolina, and Tennessee—states identified by the VDOE that
border Virginia or share similarities in student enrollment and/or size (See Appendix F). To leverage
opportunities for a shared common base of knowledge, our findings highlight key aspects of each state’s
licensure process, documenting components of initial certification to advanced certification. States
offering support for high standards, multi-tiered systems of support for the licensure and certification
process and offering clear guidelines and processes typically have greater potential to reduce the high
attrition rate among teachers of color with initial, provisional, or induction-based certificates. For
instance, of the comparable states, Georgia maintains the highest percentage of teachers of color (31%),
which could be attributed to the state’s tiered certification approach. The table below displays best
practices and unique features of each state’s licensure system.
Best Practices Across States
Policy Outcomes for Teachers of Color
Licensure
State
Components Licensure Details Affordances
Four-level Maryland A four-level career ladder must be The bill establishes an average teaching
career ladder implemented by each county board time of 60% as a percentage of total
of education by July 1, 2023. Level working time for all teachers to be phased
one is a State-certified teacher. in over eight years beginning in fiscal 2026
Level two is a teacher pursuing a as well as additional average teaching
Master’s Degree, 30 credits of a percentage targets as teachers ascend the
State board approved program of career ladder. It also expresses the General
study, or National Board Assembly’s intent that as the Blueprint for
Certification (NBC). Level three is a Maryland’s Future is implemented and
teacher who has an NBC, if NBC or a teachers are provided with additional
comparable assessment is not collaborative time, the student-to-teacher
available in the teacher’s content ratio in public schools will be reduced. (p.
area, a master’s degree in that area; 6)
level three includes an assistant
principal. Level four is a teacher on
the teacher leadership track or
administrative track of the career
ladder, each of which are further
divided into tiers (p. 5).
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Policy Outcomes for Teachers of Color
Licensure
State
Components Licensure Details Affordances
Tiered Georgia Georgia participates in a tiered Tiered teacher certification is envisioned as
Certification teacher certification system, which a means of improving student learning by
Approach creates career advancement recognizing the unique developmental
opportunities for teachers aspiring needs of teachers at every career stage and
to assume leadership responsibilities by encouraging and supporting continuous
and contribute to school teacher growth. For teachers of color, it
improvement efforts while enables a fair and equitable environment
remaining in the classroom. The for growth for practicing teachers, limiting
tiered certification structure consists potential for racial bias.
of the following: 1. Pre-Service
certificate; 2. Provisional certificate;
3. Induction certificate; 4.
Professional certificate; 5. Advanced
professional certificate; and 6. Lead
professional certificate.
National Board North The State shall support the efforts of Reduces the cost for advancement
for Professional Carolina teachers to achieve national certification and provides teachers with
Teaching certification by providing approved school-based supports to pursue NBPTS.
Standards paid leave time for teachers
Certification participating in the process, lending Additionally, Maryland’s strategic focus on
teachers the participation fee, and encouraging and supporting teachers from
paying a significant salary historically underrepresented groups
differential to teachers who attain ensures that more teachers of color gain
national certification from the advanced certification.
National Board for Professional
Teaching Standards (NBPTS) (§
115C-296.2.)
Maryland The bill establishes a program within
MSDE to encourage and support
teachers to obtain and maintain
NBC, including teachers from groups
historically underrepresented in the
teaching profession and develop a
culture of collaborative support for
accomplished teaching.
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Policy Outcomes for Teachers of Color
Licensure
State
Components Licensure Details Affordances
Student North The Student Services license entitles A student services license, along with
Services License Carolina the holder to provide specialized establishing pathways for grow-your-own
assistance to the learner, the programs, can increase the representation
teacher, the administrator and the of teachers of color, particularly for
education program in general. racially/ethnically diverse educators who
Student services licenses shall are overrepresented in student services
include school counseling, school support positions.
social work, school psychology,
audiology, speech-language
pathology, and media.
Teaching South To receive experience credit, the Affords teachers, particularly those with
Experience Carolina applicant must provide an official other forms of educational experience or
Acceptable for description of the professional teachers without a license, an opportunity
Credit duties for which he or she wishes to to transfer their experience to receive
receive the credit. These duties must credit for professional duties connected to
have been connected to the primary the primary educational program through
educational program through teaching, education administration,
teaching, education administration, curriculum development, or teacher
curriculum development, or teacher training.
training. With the exception of trade
and industry experience credit (see
R. 43-63), employment must meet
additional requirements for full-time
or half-time employment.
Teacher Quality Maryland Teacher Quality and Diversity Provides financial supports to historically
and Diversity Program MHEC must administer this underrepresented institutions (i.e., HBCUS
Program program to take advantage of and HSIs) to help prepare and support
national foundation efforts and aid educator diversity and other educators
students from historically from historically underrepresented groups.
underrepresented groups in the
teaching profession. In awarding
grants (up to $500,000), MHEC must
give priority to HBCUs and Hispanic-
Serving Institutions with a track
record of preparing diverse and
18
Policy Outcomes for Teachers of Color
Licensure
State
Components Licensure Details Affordances
high-quality teachers. Grants may
also be awarded to institutions to
assist students from groups
historically underrepresented in the
teaching profession in achieving
teacher preparation and certification
requirements. The Governor must
provide at least $1 million in the
annual State budget for the
program. MHEC must assist relevant
institutions with the application
process.
TN Educator Tennessee The State Board of Education (SBE) Policies that establish goals and targets for
Diversity Policy recently adopted a policy to recruiting and attracting, supporting, and
(adopted Feb promote educator diversity. Overall, retaining teachers of color ensures that
21) this policy outlines the requirements divisions prioritize educator diversity as a
for LEAs to set goal(s) related to key aspect of supporting student learning.
educator diversity that take into
consideration the diversity of
students the LEA
serves; providing strategies for LEAs
to use in the recruitment and
retention of minority educators; and
outlining a plan to monitor educator
diversity throughout the state.
19
V. Inherent Bias and Proposed Solutions
The study team found six key areas in which inherent bias and barriers to licensure exist:
Barrier 1: Potential Bias in Teacher Evaluations
Conducting evaluations are, of course, a standard part of many licensing processes. Teachers undergo
evaluation in educator preparation programs to showcase their skills, abilities, and readiness for the
workforce as well in schools to demonstrate their in-service experiences and performance for annual
evaluations. As the evaluation process is conducted, however, care must be taken to ensure that there
is no bias or discrimination in the process, whether it is intentional or not. The Licensure Regulations for
School Personnel (amended 2021) policy identifies several instances in which those seeking a teaching
license will face an evaluation. Evaluations are currently guided by the Virginia Standards for the
Professional Practice of Teachers (approved in 2011 and adopted in 2012). For example, the division
superintendent must provide “satisfactory performance evaluations for such teacher for each year of the
original three-year provisional license” for those seeking an extension of their provisional license. In
addition, the Regulations Governing the Review and Approval of Education Programs in Virginia policy
lists “a proficient or exemplary evaluation rating” as an indicator of effectiveness in the classroom.
Teachers of color are more likely than whites to be negatively evaluated in the workplace, even if the
behaviors among both groups are the same (Campbell, 2020; Grissom & Keiser, 2011). Negative
evaluations can certainly diminish a person’s chances of success as a teacher, particularly when seeing
advanced or professional licenses such as National Board Certification, but this is not to say that
evaluations should be removed. Rather, division leaders must ensure that school-level leaders have the
tools and insights to identify racial biases and conduct evaluations in a non-biased way.
Proposed Solutions:
● Invest in a statewide technical support center that assists LEAs to conduct analyses of
school- and LEA-based minority teacher recruitment and retention and anti-bias training;
and
● Pursue transparent policy language to avoid unclear language in teacher evaluation
guidelines that lead to multiple interpretations and inconsistencies in how teachers are
evaluated by school or district-level supervisors.
Barrier 2: Potential Bias in Supervision Requirements
Virginia licensure policy affords supervisors or mentors a significant role in the candidate’s licensing
process. For example, in the Licensure Regulations for School Personnel, requirements for multiple
endorsements include:
“…a minimum of 10 weeks of successful full-time student teaching under the supervision of a
cooperating teacher with demonstrated effectiveness in the classroom…”
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In addition, those pursuing an alternate route to licensure have “a trained mentor [who] shall be
assigned to assist the candidate during first year of employment.” Responsibilities of this mentor
include:
● Helping the teacher create a professional development plan,
● Observing, coaching, and providing feedback,
● Sharing resources and materials,
● Sharing strategies and best practices, and
● Providing general support.
As was the case with the evaluation requirements discussed above, it is possible for bias and/or
discrimination to occur (intentionally or unintentionally) when working with supervisors and mentors
given the forms of feedback and formal and informal assessments involved in these processes. All of
these responsibilities are crucial for success. Because of the importance of the role of the supervisor,
ensuring that the supervisor can be fair in their work is also crucial.
Proposed Solutions:
● Fully fund the Standards of Quality (SOQs) to include the establishment of a unit within the
Virginia Department of Education to develop guidelines for teacher leadership and
mentorship programs, as well as a statewide principal mentoring program; and
● As noted in Barrier 1, pursue transparent policy language to avoid unclear language in
teacher evaluation guidelines that lead to multiple interpretations and inconsistencies in
how teachers are evaluated by school or district-level supervisors.
Barrier 3: Use of Subjective Language
We identified several instances of subjective language used in policies, potentially creating opportunities
for candidates to be evaluated in different ways. As the typical workplace culture privileges whites,
teachers of color must oftentimes meet higher standards than their white peers. When guidelines for
evaluations are not written in an objective way, this problem can be exacerbated. As an example, the
Licensure Regulations for School Personnel policy states that a condition for licensures is to “Possess
good moral character…”. However, there is no further explanation of what constitutes “good,” or who
decides what is “good” and what may not be good.
Similarly, the same policy notes an alternate route to licensure as “at least three years of successful full-
time work experience or its equivalent.” In the Assessment Requirements for Virginia Licensure policy,
“successful teaching experience” is listed as part of the exemption criteria for licensure. In the
Regulations Governing the Review and Approval of Education Programs in Virginia policy, “success” is
used multiple times as an evaluation criterion. In these instances, the same question arises: what is
“success,” and who decides if a person is successful or not?
Subjective language is also present in the Licensure Regulations for School Personnel’s section of
revocation and potential reinstatement of licenses. The policy states:
21
“A license that has been revoked may be reinstated by the Virginia Board of Education after five
years if the board is satisfied that reinstatement is in the best interest of the public schools of the
Commonwealth of Virginia.
A question arises regarding the standards for deciding what is in the “best interest” of the schools. While
in this case it is clear who makes the decision (the Virginia Board of Education), there still appears to be
subjectivity.
In addition, the idea of “professionalism” is mentioned several times throughout the Regulations
Governing the Review and Approval of Education Programs in Virginia policy. It lists “professionalism and
ethical standards, as well as personal integrity shall be addressed” as a foundation of education and the
teaching profession, and “understanding the standards of professionalism” is listed as a requirement. As
is the case with the above examples of “success” and “good moral character,” the idea of
professionalism may be different to different people and, thus, judging candidates based on these
factors may lead to biased outcomes.
Proposed Solutions:
● Reevaluate and revise subjective policy language such as moral character, professionalism,
and other areas where bias impacts marginalized populations; and
● Develop a task force to combat bias and subjectivity and to address reported incidents
manifested through biased evaluative policies.
Barrier 4: Disparities in Opportunities
Finally, there are several instances throughout the policies in which not all candidates are likely to have
equal access to opportunities, thus diminishing their chances of successfully obtaining a professional
license. The Licensure Regulations for School Personnel policy, for instance, requires that candidates
“pay the appropriate fees as determined by the Virginia Board of Education and complete the application
process.” Paying a fee, regardless of the amount, may present greater challenges for some than for
others. Disparities in opportunities can also arise due to the area in which one lives. The Licensure
Regulations for School Personnel policy requires that candidates fulfill online instructional procedures,
yet access to broadband is not available in all areas. Those living in places without this access may face
challenges in meeting online teaching standards. The “career switcher” program contains differences in
degree requirements. For example, only vocational teachers do not require college degrees. While this
certainly opens up opportunities for those seeking to be vocational teachers, those facing barriers to
obtaining a degree (e.g. a lack of financial resources or family commitments) would face greater
difficulties becoming licensed to teach in other areas. While the requirement for a degree seems
reasonable, perhaps steps could be taken to help reduce barriers to college education.
The Virginia Teaching Scholarship Loan Program is one example of a step to reducing education barriers,
though policy also raises some questions regarding disparities in opportunities. This scholarship requires
a nomination, though it is not clear if self-nominations are allowed. In order to ensure equal
opportunities, allowing anyone interested in the scholarship to self-nominate would ensure that bias
from external nominators does not limit potential applicants. This policy also states that:
22
“The Board of Education and the State Council of Higher Education shall make available to
parents, students, teachers, high school counselors, and academic advisors and financial aid
administrators at public and private institutions of higher education information concerning the
Virginia Teacher Scholarship Loan Program…”
While it would certainly be beneficial for all students to know of this opportunity, it is also important to
recognize that not all students may have the same access to this information. Questions arise regarding
how this information is shared, and how one can be sure that all students are provided with this
information.
Proposed Solutions:
● Expand financial benefits:
○ Eliminate the gap between the average Virginia worker’s salary and teachers’
salaries by increasing teacher salaries over the next three years;
○ Expand Virginia Teaching Scholarship Loan Program (VTSLP) and support other
service scholarship and loan forgiveness programs to cover or reimburse a portion
of tuition costs in exchange for teaching commitment (5 years);
○ Establish a Teacher of Color Education Scholarship of Virginia (TCES-VA) program to
increase the number of minority teachers in Virginia to better reflect the state’s
diverse population; and
○ Connect National Board Certification to Schools Serving Students of Color: Teachers
who work in historically underserved schools are more likely to be teachers of color.
To recruit and retain them, the state should designate funds for additional annual
bonuses for those teachers who hold National Board Certification and work in these
buildings.
● Expand the line item in the General Assembly to fund Teacher Residency programs:
Providing stipends and tuition support to prospective teachers creates opportunities for
teachers of color to receive stronger teacher preparation while reducing the financial
burden, creating greater teacher retention and effectiveness once they complete their
programs.
● Create guidelines for a statewide comprehensive teacher induction model for all teachers
in years one through three. Teacher induction models should be jointly funded by the state
and LEAs
Barrier 5: Bias in Licensure Assessments
Teacher licensure examinations or assessments are critical junctures on the pathway to becoming a
licensed, professional teacher. Before becoming a teacher-of-record, states require that teachers
demonstrate subject-area knowledge, pedagogical knowledge, and professional teaching ability by
passing specific assessments. Teachers usually take these assessments after successfully completing an
accredited educator preparation program with specific courses and hours of fieldwork. Teacher
candidates also must pass a combination of “basic skills” (i.e., literacy and mathematics), subject area,
23
and pedagogical knowledge tests. In Virginia, the basic skills test is Virginia Communication and Literacy
Assessment (VCLA), a measure of academic skills that is required for teachers in all subject areas. It is
composed of two area subtests − a Reading Subtest (091) and a Writing Subtest (092), which “measures
the communication and literacy skills necessary to teach and communicate effectively with parents and
others in the education community” (Pearson Education, 2020a). There is limited empirical evidence on
VCLA specifically, which highlights the need for future validation studies and evidenced-based findings
to support, modify, or limit particular aspects of this licensing exam. However, research on other state
licensure exams and assessments offer key implications for VCLA and other assessments that function as
gatekeepers, presenting barriers for teachers of color. Specifically, research is needed in Virginia to
determine whether or not teacher licensure tests are effective at measuring teacher effectiveness,
identify which, if any, licensure tests are most appropriate for evaluation, and examine racial disparities
visible in the scores on these tests.
Test Validity
First, studies emphasize the importance of test alignment and validity, especially when used for high-
stakes for certification (Greenblatt, 2016; Henning, 2014; Meuwissen, 2014; Sato, 2014; Wilkerson,
2015). In an examination of The Performance Assessment for California Teachers (PACT), a teacher
licensure assessment used in California, Wilkerson (2015) states: “Alignment is one of the key processes
used to establish evidence of content validity. It is the basis for creating test blueprints. Good alignment
includes not only an analysis of construct coverage but also an alignment of student instructions to rater
scoring” (p. 186). Another study examining the validity of PACT found evidence to support its use as a
summative assessment; however, findings did not support its use for formative purposes (Duckor et al.,
2014).
Financial Barriers and Costs
A second consideration is cost and financial burdens of licensure assessments and texts.
A study from James and colleagues (2020) outlined the various costs associated with teacher licensure in
Virginia: The initial application fee for teacher licensure for in-state candidates is $100 with an additional
$50 to add an endorsement. In addition to the application fees, the licensure requirements can cost up
to $400 and includes the 93 Virginia Communication and Literacy Assessment (VCLA) which costs $130
($50 nonrefundable fee and $80 for two subtests), the Praxis Subject Assessment ($120 - $146) and the
Praxis Series Reading for Virginia Educators ($130) for individuals seeking elementary or special
education licenses. Although fee waivers are offered for low-income candidates, these options are
limited and division or statewide efforts offering financial support are not consistent. The total costs of
obtaining a teacher license can pose significant challenges for candidates, especially if candidates seek
to complete multiple endorsements areas or are required to retake assessments. Studies conclude that
the cost of licensure assessments affect teacher equity and diversity, discouraging prospective teachers,
many of whom already struggle with sizable educational debt, from entering the workforce (James et al.,
2020).
24
Teacher candidates of color mentioned the need to take and retake licensure exams as a reason for
choosing to leave a teacher preparation program and choose another major, “because I don’t have to
take as many tests to do that.” Financial supports, such as fee waivers and Title III funding, are
inconsistently made available to teacher candidates. Prospective teachers of color are often unaware of
financial support, such as fee waivers from the testing companies. A Latina, first generation college
student currently completing student teaching told us that she paid for all of her licensure exams out of
pocket.
EPP licensure staff shared an additional challenge for those whose first language is not English,
explaining that accommodations are often not needed in other academic settings, but timed,
standardized tests in English pose challenges. However, the time it takes to request and receive
accommodations is beyond the reasonable timetable needed to move forward in programs. This leaves
many multilingual teacher candidates postponing their student teaching and graduation by one or more
semesters as policy requires waiting a month to retake a test.
When candidates need to retake exams, they must find funding elsewhere, as the fee waiver can only be
used once. Requiring official transcripts from all community colleges and universities attended adds
additional costs as well. The lack of available testing sites across Virginia then adds travel time and costs
for prospective teachers. There are few free resources to prepare for tests. Successful candidates
described purchasing preparation materials and tutoring subscription services. We must then ask if we
are assessing teacher knowledge and skill or financial means. Additionally, many considered additional
assessment and documentation requirements while completing a traditional teacher preparation
program causes a great deal of stress. As one candidate explained, “it's just another stress added on top
of coursework added on top of student teaching and practicum. I can't work because I'm doing x, y, and
z, or if I am working, when do I have time to study?”
Racial Disparities
Racial disparities in state teacher licensure exams is an important consideration of Virginia’s teacher
licensure policy. Licensure tests have been identified as “a key gatekeeper to the field and directly
shapes the racial diversity of the profession” (Petchauer, 2016, p. 1). Although most states require these
forms of assessments, prior research identify racial discrepancies indicating that Black/African American
teacher candidates disproportionately fail teacher licensure examinations or assessments, such as the
Praxis exam, compared to their white counterparts. In one study of Praxis assessment across 28 states
between 2005 and 2009, Black/African American test takers scored lower, on average, even when
controlling for variables such as undergraduate grade point average, selectivity of institution, and
parent’s education level (Nettles et al., 2011).
To explain differences in passing scores, there are two general conclusions. First, differences in academic
preparation and skills of the test taker that indicate deficiencies in skills and knowledge. Students’ prior
experiences with standardized testing can also affect their efficacy on teacher licensure exams
(Petchauer, 2016). However, differential outcomes are largely attributed to variation in teacher
25
preparation. Studies show that teachers with traditional teacher education and preparation from a
college or university degree program tend to perform slightly better than alternatively certified teachers
in terms of value-added teacher quality metrics (Castro & Edwards, 2021; Clotfelter, Ladd, & Vigdor,
2010; Goldhaber, Liddle, & Theobald, 2013). Variation in program quality can also influence teacher
turnover or attrition—factors that contribute to overall shortages of teachers of color. Studies
examining the relationship of certification or licensure pathway and retention show that teachers from
alternative pathways have higher rates of attrition, especially for teachers from fast-track programs or
“boot-camp-style” routes to teacher certification requiring minimal training or a learn-on-the job
approach (Redding & Smith, 2016). Overall, teachers from alternate routes tend to have less student
teaching experience or other pre-service training that may affect performance on licensure exams
(Castro & Edwards, 2021).
A second conclusion locates structural inequalities, stemming from lower quality K-12 schooling
experiences that accumulate over time to impact overall performance. This explanation also accounts
for test bias and the “the subjective and social psychological ways test takers actually experience exams”
(Petchauer, 2014, p. 4). That is, viewing licensure exams as a testing event that includes interactions
with proctors, site administrators, and other test takers before and during exams as well as the cognitive
and affective processes beyond the specific skills the test is designed to measure may explain
differences in scores and outcomes for Black teachers (Petchauer, 2014).
Proposed Solutions:
● The Virginia Board of Education should evaluate the existing assessment requirements for
licensure, and act to eliminate those that are not absolutely essential, align assessment
requirements with skills and competencies of high-quality teaching, and provide
candidates multiple types of assessment opportunities to demonstrate their skills
(Recommended by the Advisory Committee on Teacher Shortages, 2017).
○ In addition, the VBOE should reevaluate assessment passing scores recently raised
and disproportionately impacting Black and Hispanic candidates (such as the VCLA);
○ Given that the VDOE may grant exceptions to recommended teachers who failed to
pass licensure exams, we recommend that the VBOE consider alternate options to
assess teacher performance, specifically, classroom-based teaching assessments as
alternative options to current licensure assessments as a singular approach;
○ Expand funding to pay for licensure exam costs currently paid by teacher candidates
of color enrolled in teacher preparation programs and by provisionally licensed
teachers of color; and
○ Expand programs like the "Competitive Grant for Praxis and Virginia Communication
and Literacy Assessment Assistance to Support Diversity Among Provisionally
Licensed Teachers Seeking Full Licensure in Virginia (PDF)" program to cover testing
costs for all teachers of color.
26
Barrier 6: Challenges in Communication and Processing
In order to obtain or renew a teaching license in Virginia, an individual must locate accurate information,
enter a teacher preparation program or accept employment by a school/ division, complete a series of
requirements that differ by the route to licensure, complete licensure exams, demonstrate effective
practice, and have their licensure documents reviewed by a knowledgeable staff person in the VDOE.
Each of these steps presents potential obstacles. Analyses of interviews and focus groups highlighted
three key communication challenges for all prospective and current teachers, as well as the particular
ways these challenges are exacerbated by being a member of an underrepresented minority group.
These key challenges are:
1) Availability of accurate information
2) Incoherent policy and implementation
3) VDOE licensure processing systems
Availability of Accurate Information
Expressing frustration as a multiracial educator now in a school division leadership role, one participant
described VDOE communication approaches as, “withholding the information,” and described her
advocacy stance with prospective teachers of color saying, “that information is public and there should
be no reason or barricades that can keep us from that knowledge.” In order to recruit and retain
teachers of color, the administrative burden falls on school division leadership to create tutorials,
websites, and other communication tools to help prospective teachers gain the licensure policy
information that is inaccessible on the VDOE website. Many provisionally licensed teachers of color
described gathering information from their colleagues “to beat the system,” as they received different
information from their school division licensure offices, universities, and the VDOE licensure staff. When
teacher candidates and provisionally licensed teachers have a professional network of peers in the field,
they can more readily obtain the information needed and navigate potential hurdles. Teacher
candidates and provisionally licensed teachers of color are less likely to have that professional network.
As one school division HR director told us, “They are just not in the know.”
Incoherent Policy and Implementation
The website is not easily navigable for the layperson without a background in educator licensure. Not
only is it challenging to navigate, but the vast array of professional entry points and pathways to
provisional and professional licensure lead to conflicting understandings among teacher candidates,
school division staff, and VDOE staff.
For out-of-state candidates, varied endorsement terminology within and outside of Virginia outlined in
the Conditions for Licensure for Out-Of-State Candidates by Reciprocity may cause individuals seeking to
transfer from other states to either complete additional coursework or find employment in another
sector. Teacher Preparation Program licensure officers and leaders mentioned the lack of easily
navigable and publicly available information as well. They instead relied on biannual meetings with
27
VDOE leadership to walk them through changes and details, as well as email communications, to
prepare teacher candidates’ licensure packets. Teachers of color described completing a university
program aimed to provide all coursework requirements for professional licensure only to be told by a
human resources staff member that they needed to take additional coursework. Although this is likely
attributed to the various entry points for licensure and institutional program requirements, access to
easily navigable information on the VDOE website could provide greater clarity for teachers when
gathering information about differences that may exist for institutional program requirements versus
licensure and endorsement requirements. School division HR staff explained that principals often want
to hire a teacher to meet their staffing needs, but the teacher isn’t endorsed in the areas needed. This is
particularly true for the staffing needs and licensure regulations in special education.
Teacher candidates and teachers of color described multiple experiences being denied their application
and requiring additional fees to be paid, coursework to be taken, or forms completed in a different
manner.
A university licensure officer described the licensure requirements and
process as “a guessing game.”
EPP licensure staff and leadership noted changes from year to year in the licensure packet details. For
example, multiple participants described confusion around transfer credits on official transcripts;
applicants must now obtain official transcripts from all institutions. Other sources of confusion included
whether an EPP could verify that a student completed all program requirements except student
teaching and meet that requirement through one year of teaching on a provisional license, whether a
course could meet requirements in two licensure areas (even if specified within approved program
matrices), and course review (regardless of approved program status). Without written guidance or
training, licensure officers inconsistently implemented policy interpretations and licensure staff in EPPs
and school divisions relied on word of mouth to make sense of the ever-changing policies and practices.
VDOE Licensure Processing Systems
EPP leadership described the need to communicate all licensure information to candidates as it was
difficult for prospective teachers to locate. HR officers described the same problem, often developing
their own webpages, tutorials, and communication tools. All EPP participants mentioned the need to
help each individual candidate with all their licensure paperwork and review, but often faced challenges
with limited capacity. Both teacher candidates and EPP leadership agreed that individual appointments
were effective for addressing teachers’ unique needs, whether they were early career teachers or
experienced, veteran teachers seeking license renewal (see Challenges in License Renewal).
28
“Not only did they get this letter almost two months after we submitted it,
but because it had been so long, they now had to refill out the applications
because of the legal questions on the front, since it had been over 90 days
since they signed the document.”
At the conclusion of an often years-long process, teachers and teacher candidates must mail a license
application with printed copies of all required components to the VDOE. Pending review of a packet and
receipt of the payment, the VDOE then mails the license to the teacher. We found three barriers at this
point in the licensure process: 1) VDOE staff either didn’t receive all of the materials mailed or were not
knowledgeable about what met the requirements, 2) requirements and application forms change
frequently and 3) it often takes multiple months to receive a license after submitting the application and
required materials. Another participant described the process saying, “hopefully by the time the Virginia
Department of Education receives them in the postal mail it's still the document that they're still
accepting and using.” New teachers and school division leaders described multiple instances where the
teacher didn’t receive their license until multiple months after being hired. If anything on the application
required correction, that could add financial costs and additional administrative burden for the teacher.
A licensure officer described this scenario to us, “Not only did they get this letter almost two months
after we submitted it, but because it had been so long, they now had to refill out the applications
because of the legal questions on the front, since it had been over 90 days since they signed the
document.” The administrative burden required of school division and teacher preparation program
staff to review and facilitate licensure applications and that required of teachers and teacher candidates
to resubmit paperwork is daunting.
Overall, the lack of accessible and navigable information sources, frequent change of VDOE licensure
documents and requirements, inconsistent policy implementation, financial constraints, and
challenges inherent in a paper-based system of documentation become even greater barriers for
teachers of color and for multilingual candidates whose first language might not be English.
Licensure renewal requirements and moving from a provisional to professional licensure entail the same
administrative burdens and processes as obtaining initial teaching licensure in Virginia. In addition,
teachers wishing to renew professional licenses need to complete professional development activities
based on a point system. School divisions have the flexibility and autonomy to award differing point
values to the same activities (e.g., mentoring, professional development workshops) and the autonomy
to offer varied professional development activities or financial resources to support external offerings,
such as leadership credentialing or National Board Certification. For example, some school divisions pay
for national board certification costs up front, others reimburse teachers who successfully earn
certification, while others do not have the resources to cover any of the costs associated with
advancement. Similarly, some school divisions offer high quality professional development
29
opportunities, while others offer workshops that meet the requirements, though teachers describe
them as ineffective (“just checking the box”).
Challenges in License Renewal
Renewal Requirement Type What Stakeholders Are Saying
National Board Certification (NBC) “It just seemed like there was a lot of secrecy around it
[NBC]… and you have to pay upfront and get reimbursed.”
“I’m curious, but I don’t even know what it is.”
“I’m just not sure that they’re [teachers of color) receiving
the information.”
“With regard to nationally board-certified teachers, we do
provide a stipend for them to carry on and we do provide
the in-house mentoring that is needed to get that renewed
as well.”
Continuing Education/Professional “We work with our director of professional learning and
Development we have a database system that monitors and keeps
professional learning points, and we would just embed a
link to that in a reminder that that's where you need to go
to better understand how many points you've already
acquired and then we'll send them a reminder about
renewal.”
“In my first division, I was given required components for
professional development and which would count towards
re-licensure. But when I moved divisions to Suffolk, there
was a separate professional development from what is
eligible for licensure. There are just inconsistencies
between districts on what counts towards licensure.”
30
Proposed Solutions:
● Create a clear and streamlined licensure website that clarifies what requirements are
needed based on the route to licensure and endorsement(s) sought. This reduces the
disproportionate impact of inaccessible information on prospective teachers of color who
often do not have a personal or professional network able to provide this information.
● Create an online licensure application portal that integrates all forms and payment,
reducing the possibility of delayed mail, user error, and submission of outdated documents.
○ Within this portal, teachers should be able to track professional development points
earned and additional credentialing/ endorsement options; and
○ The portal should have sharing/sending options for EPP or division leadership to
review and approve documents before the VDOE review process.
● Create sustainable working conditions: To better retain all teachers, but particularly
teachers of color who serve in schools with greater student and staffing needs, a long-term
strategy to improve working conditions is necessary. These recommendations include:
○ Examine educational environments or school working conditions, the unique work
demands, work responsibilities (formal and informal), and workload manageability
of teachers of color;
○ Establish an average teaching time of 60% of the total contract hours;
○ Establish average teaching percentage targets that correspond to the career ladder/
teaching experience;
○ Reduce the student-to-teacher ratio;
○ Eliminate the support staff cap to provide greater instructional and behavioral
support to teachers of record; and
○ Provide racial justice-oriented professional development to support teachers of
color.
● Virginia should offer “full” reciprocity for an individual who holds an out-of-state, District
of Columbia, or territory of the United States renewable teaching license (with no
deficiencies) with 15 comparable endorsements that is in force at the time the application
for a Virginia license is received by the Department of Education. With “full” reciprocity,
such individuals would not be required to meet prescribed Board of Education initial
licensure assessments. (Recommended by VDOE Reciprocity workgroup)
● Invest in implementation capacity to provide technical support to local divisions, provide
clear guidance, ongoing training, and oversight to ensure divisions follow consistent
processing guidelines and are adequately supported:
○ Increase VDOE Licensure Office staffing to reduce the amount of time between
submission and notification of licensure application status; and
○ Invest in a statewide technical support center that strengthens and supports a
diverse teacher pipeline and career ladder (e.g.- minority teacher leadership
preparation, mentoring, coaching, and advanced/ leadership credentialing supports)
and assists LEAs to develop innovative grow-your-own programs, EPP-LEA-VDOE
31
partnerships, and analysis of school- and LEA-based minority teacher recruitment
and retention.
● Develop specific policy guidance to support recruitment and retention of teachers of
color:
○ Create an adaptive data system to track teachers’ licensure status; and
○ Develop performance metrics to achieve workforce diversity goals, as well as
accountability for LEAs.
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VI. Conclusion
Research indicates that attracting teachers of color is imperative to long-term student success,
especially in closing the education gap between students of color and their white peers (Chung & Zou,
2021; Gershenson et al., 2021; Scherer et al., 2021). Therefore, a teacher's race and/or ethnicity should
be factored as an asset in teacher quality and should be incorporated into the policies and regulations
reviewed (Hansen & Quintero, 2021). Although our analysis suggests there is incoherent policy
implementation of licensure code that may contribute to teacher bias, it is important to note that there
are various entry points and pathways to licensure and endorsement for teachers in Virginia, which
inherently adds to teachers’ overall sense of incoherence.
In an effort to promote an equity-based research agenda focused on preventing biases in teacher
licensure processes, VDOE should expand its ongoing data transparency and monitoring efforts to
proactively identify barriers for teachers of color in the teacher licensure process and beyond. VDOE’s
current data availability and monitoring approach does not allow us to answer the following questions
as it pertains to additional barriers and potential biases for teachers of color:
1. What percent/number of teachers get their license terminated (non-renewals)? How do these
outcomes vary by teacher racial/ethnic groups and across school divisions?
2. What is the rate of teachers of color licensed under the various types of license as outlined in
Virginia code (i.e., Collegiate Professional License, Technical Professional License, Online
Teacher License)?
3. What data exist/ how many or percentage of teachers on provisional licenses are exempted
from passing licensure exams to move to professional licensure? How do these outcomes vary
by teacher racial/ethnic groups and across school divisions?
4. What data exist on the rate of provisionally licensed ToC who obtain a license via special
conditions for licensure (see below)? What data exist on those who are not recommended vs.
those who are?
a. holds a provisional license that will expire within three months or, at the discretion of
the school board and division superintendent, within six months if the individual has
received a satisfactory mid-year performance review in the current school year;
b. is employed by a school board;
c. is recommended for licensure by the division superintendent;
d. has attempted, unsuccessfully, to obtain a qualifying score on the professional
assessments as prescribed by the Board;
e. has received an evaluation rating of proficient or above on the performance standards
for each year of the provisional license, and such evaluation was conducted in a manner
consistent with the Guidelines for Uniform Performance Standards and Evaluation
Criteria for Teachers, Principals, and Superintendents; and
33
f. meets all other requirements for initial licensure.
5. Which divisions disproportionately rely on a high proportion of provisionally licensed teachers to
staff positions?
6. How does VDOE and/or divisions gather evidence about the general quality of renewal
requirements such as continuing education courses or professional development supports?
Which professional development activities used to renew an expiring teaching license drive
improvement in practice?
7. What are the pass rates for provisionally-licensed teachers of color on licensure assessments?
Are there some school divisions whose pass rates outpace others?
34
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37
Appendix
Appendix A Size of Virginia Teacher Workforce and Student Population
Appendix B Reasons for Turnover
Appendix C Teacher Migration and Attrition in the US
Appendix D Race and Ethnicity Exit Rates in Virginia
Appendix E Critical Teacher Shortage in Virginia
Appendix F State by State Licensure Comparison
Appendix A: Size of Virginia Teacher Workforce and Student Population
Miller (2018)
38
Appendix B: Reasons for Turnover
(Ingersoll, May, Collins, 2017)
Out of the teachers who identified dissatisfaction as their reason for leaving the profession, student
discipline, accountability, and administration were the top three factors in teacher turnover. The lack of
influence and autonomy is a common theme as well, manifesting in other findings on teacher turnover
as well. “The data (not shown here) also show that nonteachers of color report similar reasons behind
their turnover, and that, in general, similar kinds of dissatisfactions underlie both teacher migration and
teacher attrition.”
39
(Ingersoll, May, Collins, 2017)
40
41
Appendix C: Teacher Migration and Attrition in US
(Ingersoll, May, Collins, 2017)
In Virginia teacher turnover is reflected in full time teachers transferring to other schools, possibly in
other districts (132 school division in Virginia) or states and/ or exiting the field altogether. This also
accounts for school closings and layoffs around the state and teachers who work in more than one
school division. Teachers in Virginia are exiting schools at higher rates than they are transferring to other
school divisions.
Miller, Lane (2018)
42
Appendix D: Race/ Ethnicity Exit Rates in Virginia
In Virginia, more teachers of color are transferring and exiting the teaching profession than their white
counterparts. There is however a significant variation in teacher turnover across the state. Rates or
teacher attrition are also associated with student poverty and academic performance.
(Miller, 2018)
43
Appendix E: Critical Teaching Shortage in Virginia
In Virginia, “critical shortage” may be defined in two ways: (1) shortages by subject matter as designated
from the top ten academic disciplines identified in an annual survey of school divisions; or (2) a school
personnel vacancy for which a school division receives three or fewer qualified candidates for a position.
2021-2022 Ten Critical Shortage Teaching Endorsement Areas in Virginia
1. Special Education
2. Elementary Education PreK-6
3. Middle Education Grades 6-8
4. Career and Technical Education
5. Mathematics Grades 6-12 (including Algebra 1)
6. Science (Secondary)
7. Foreign Language PreK-12
8. English (Secondary)
9. Library Media PreK-12
10. Health and physical education
VDOE (2021)
44
Appendix F: State by State Licensure Comparison1
Georgia
Georgia’s tiered system of certification includes six tiers that “recognizes the unique developmental
needs of teachers at every career stage and by encouraging and supporting continuous teacher growth.”
It includes the following certificate types: 1) Pre-service teaching certificate, 2) Provisional certificate, 3)
Induction certificate, 4) Professional certificate, 5) Advanced professional certificate, and 6) Lead
professional certificate.
The Pre-Service Teaching certificate assists pre-service educators, once admitted to certain state-
approved educator preparation programs, in understanding the Georgia Code of Ethics for Educators.
The Pre-Service certificate is valid for five (5) years and candidates cannot hold a valid Georgia certificate
or Permit in a teaching field, or an expired Georgia renewable professional certificate in a teaching field.
For the pre-service teaching certificate, a candidate must:
● Be admitted to an educator preparation program in the state of Georgia, any other U.S.
state or online, which meets requirements for approved programs
● Pass the Georgia Educator Ethics Assessment,
● Have a successful Georgia Crime Information Center (GCIC) criminal record check
● Must be requested by the educator preparation provider
The Provisional Certificate allows individuals meeting entry requirements to teach up to three years
while completing requirements for professional certification. For the provisional certificate, a candidate
must:
● Hold a bachelor’s degree or higher from a GaPSC-accepted accredited institution, unless
Georgia does not require a bachelor’s degree for the specific field. Minimum degree
requirements are defined in the applicable teaching or service rule.
● Applicants must meet the undergraduate GPA requirement of 2.5 or higher on a 4.0
scale or hold a master’s degree from a GaPSC-accepted institution.
● Attain a passing score on statewide assessments
● Have the certificate requested by the employing Georgia local unit of administration
(LUA)
The Induction Certificate provides a statewide structure for the professional development of early
career educators (defined as one who is new to the profession with fewer than three [3] years of
experience); and educators new to the state of Georgia and assures the effectiveness of these
educators.
For the induction certificate, a candidate must:
● Meet the minimum requirements for becoming an educator in Georgia
1
The information presented in Appendix F is drawn from the Education Commission of the States (ECS) report, 50-
State Comparison: Teacher License Reciprocity.
45
● Complete a GaPSC-approved educator preparation program at the appropriate degree
level as defined in the applicable teaching or service rule and receive verification of
program completion
● Attain a passing score on Georgia educator assessments
The Professional Certificate ensures that classroom teachers meet minimum requirements and satisfy
state teacher effectiveness requirements as defined in the state teacher evaluation system. The
Professional certificate is also issued in service and leadership fields to educators meeting professional
requirements. Georgia issues two (2) types of renewable Professional certificates: Standard and
Performance-Based.
The Standard Professional teaching certificate is intended for those individuals evaluated by a school,
district, or agency-approved evaluation system and not evaluated by the statewide evaluation system. It
is issued to individuals who do not meet the requirements for the Performance-Based Professional
teaching certificate but do meet the following requirements:
● Hold a valid or expired out-of-state professional certificate at the bachelor’s degree
level or higher, with three (3) or more years of successful experience
● Pass or exempt the GACE content assessment.
● Satisfy the Special Education requirement with a grade of B or better.
The Advanced Professional Certificate provides a statewide structure to recognize expert classroom
practice and professional growth resulting in higher levels of student learning. For the advanced
professional certificate, a candidate must:
● Hold a valid Georgia professional teaching certificate
● Have earned a minimum of ten (10) years of successful educator experience (three of
which must be in Georgia)
● Meet Georgia’s Standards of Conduct
● Hold an advanced degree in any teaching field; or Valid professional certificate in
Curriculum and Instruction or Instructional Technology; or Valid National Board for
Professional Teaching Standards certification;
The Lead Professional certificate provides a statewide structure to promote, support, and expand
opportunities for teacher leadership in grades P-12 to improve effective classroom practice resulting
in higher levels of student learning. For the lead professional certificate, a candidate must:
● Obtain at least five years of acceptable educator experience, at least three of which
must have been earned on a Georgia certificate within the last five years.
● Obtain one of the following: 1) Teacher leadership certification, 2) an advanced degree
in a teaching field and a Teacher Leader, Coaching, or Teacher Support & Coaching
endorsement, 3) a Certificate in Curriculum & Instruction or Instructional Technology
and a Teacher Leader, Coaching or Teacher Support and Coaching endorsement, OR 4)
National Board certification and a Teacher Leader, Coaching, or Teacher Support and
Coaching endorsement.
● Be employed with a Georgia school district.
46
Maryland
Conditional Certificate (COND)
● Valid for two years
● Issued only at the request of a local school system superintendent to an applicant
employed in a local school system who does not meet all certification requirements.
Resident Teacher Certificate (RTC)
● Valid for two years
● Issued to an applicant who has been selected by a local school system to participate
in an alternative teacher preparation program.
Professional Eligibility Certificate (PEC)
● valid for 5 years issued to an applicant who meets all certification requirements and
is not currently employed in a MD local school system.
Standard Professional Certificate I (SPC I)
● valid for 5 years issued to an applicant who meets all certification requirements and is
employed by a Maryland local school system or an accredited nonpublic school.
Standard Professional Certificate II (SPC II)
● Valid for 5 years; issued to an applicant who completes the SPC I, is employed by a
Maryland local school system or an accredited nonpublic school, and submits the
following:
▪ 1) verification of 3 years of satisfactory professional experience;6 semester
hours of acceptable credit; and
▪ 2) A professional development plan for the Advanced Professional Certificate
(APC).
Advanced Professional Certificate (APC)
● Valid for 5 years; issued to an applicant who submits the following:
▪ 1) verification of 3 years of full-time professional school-related experience; 6
semester hours of acceptable credit; and
▪ 2) A master's degree, or a minimum of 36 semester hours of post-baccalaureate
coursework which must include at least 21 semester hours of graduate credit
(The remaining 15 semester hours may include graduate or undergraduate
course work and/or Maryland State Department of Education Continuing
Professional Development (CPD) credits, or obtained National Board
Certification and earned a minimum of 12 semester hours of approved graduate
course work earned after the conferral of the bachelor's or higher degree.
47
North Carolina
The Residency License
The Residency License is a new alternate pathway to becoming a professional educator. This route
allows qualified individuals to obtain a teaching position and begin teaching right away as a Resident
while obtaining a clear professional educator's license. The NC Dept of Public Instruction authorizes a
one-year Residency License that may be renewed twice for up to a 3-year licensure cycle. Residency
licensure is issued on a provisional basis in the teaching area that corresponds to the individual's
qualifications. An approved educator preparation program (EPP) must determine the applicant for the
license to be qualified and enroll the individual, while a North Carolina school system or charter school
employs the Resident to teach. Both EPP enrollment and public-school system employment as a teacher
are required to qualify for and continue teaching on a Residency License.
Student Services license
A student services license shall entitle the holder to provide specialized assistance to the learner, the
teacher, the administrator and the education program in general. Student services licenses shall include
school counseling, school social work, school psychology, audiology, speech-language pathology, and
media. Student services personnel who have completed an approved preparation program but not
satisfied NCSBE-required tests are issued an Initial Professional License.
Provisional License
Provisional licenses are issued only at the request of the employing LEA. This license is issued with the
requirement that course work for full licensure be satisfied at the rate of six semester hours per year.
Credits must be completed prior to the beginning of each new school year and must conform to the
conditions set by the Licensure Section of the Department of Public Instruction to clear provisional
status.
Initial Professional License
The Initial Professional License (IPL) is issued for a three-year period and allows the educator to begin
practicing the profession on an independent basis in North Carolina. For the Initial Professional License,
an individual must either complete an approved educator preparation program, or qualify for an initial
lateral entry license, or qualify for an initial CTE license as outlined by the State Department of Public
Instruction.
Continuing Professional License
This license is issued to individuals who have three or more years of successful public-school teaching
experience. To convert an Initial Professional License to a Continuing Professional License, an educator
must complete all required coursework and achieve a passing score on all North Carolina State Board of
Education-approved exams required for the license area(s) within the established timeframe. The
Continuing Professional License (CPL) is issued for a five-year period during which time teachers must
complete renewal requirements.
48
South Carolina
Initial Educator Certificate
An Initial educator certificate is valid for three school years and is not renewable. It is typically issued to
an early career educator or to an educator without recent work experience in a regionally accredited Pk-
12 education setting.
Limited Professional Certificate
The Limited Professional certificate provides a certificate advancement option for educators who hold
South Carolina Initial teaching certificates and who are employed as educators in eligible, non-regulated
educational entities in this state. In this context, “non-regulated” means that the entity is not required
to comply with State Board of Education regulations and guidelines for evaluating educator performance
and effectiveness. Limited Professional certificates are valid for a period of up to five years and are
renewable. Limited professional certificates last up to seven-year time period and the educator must
have:
● A valid South Carolina Initial teaching certificate;
● Be employed in a position and non-regulated educational entity which aligns (both in
content and grade range) with a field in which the educator holds Initial certification;
● Successfully completed an annual performance evaluation process that is approved by
the employing educational entity.
Professional Certificate
In order to advance from an Initial to a renewable Professional certificate that is valid for five school
years, an educator must successfully complete additional requirements while employed in a South
Carolina public school setting. For the standard Professional certificate, the educator must:
● Be employed in a South Carolina public school,
● Participate in the employing district’s induction program, and
● Successfully complete the summative evaluation of teaching performance at the Annual
contract level as part of the state’s system for Assisting, Developing, and Evaluating
Professional Teaching (ADEPT).
49
Tennessee
Practitioner License: The practitioner license is considered the initial or entry-level license. New or out-
of-state teachers are first awarded this license. It is valid for three years and can be renewed once, for a
total of six years, while working towards a professional license.
Professional License: This is the most advanced teaching license offered in Tennessee. Teachers
advance to a professional teaching license after gaining at least three years of teaching experience,
complete an approved educator preparation program, submit passing scores on required content and
literacy assessments; and obtain the recommendation of the Director of Schools or earn 30 Professional
Development Points (PDPs), which can be gained by completing continuing education credits.
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