DECEMBER 2023
PG. 1
THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
Research and Analysis
December 1, 2023
During the first 100 days of my administration, I established the
Educator Retention Task Force through Executive Order 2023-07
to hear directly from educators about the retention crisis facing
the profession and to create recommendations to improve
educator retention.
Over the past several months, the members of the Task Force
engaged nearly 10,000 current and former educators across the
state to understand their needs and concerns; studied promising
practices from Arizona-based programs and those in other states;
and developed thoughtful recommendations that will support
educators and encourage increased retention. The Task Force also
commissioned this report that provides important research and
analyses that can inform future conversations about improving
educator retention.
I am grateful for the time the Task Force members invested in this work and for their willingness to be
open about their experiences and challenges.
I would also like to thank the Morrison Institute for Public Policy for conducting the 2023 Educator
Working Conditions Study in partnership with the Task Force. Additionally, I am grateful to The Hunt
Institute for facilitating the process to create the Task Force’s recommendations and for their work in
drafting this report. My gratitude also goes to the partners who helped distribute the working conditions
survey across the state and to the thousands of educators and former educators who responded. I am
thankful for their engagement and their voices which were essential in informing this report and the
Task Force’s recommendations.
Katie Hobbs
Governor
State of Arizona
DECEMBER 2023
PG. 2
THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
Research and Analysis
Educators are the number one factor influencing student growth and achievement. Yet, across the country, districts and
school leaders are struggling to retain educators and fill vacant classrooms. As of 2022, there were an estimated 55,000
teacher vacancies across the country and 270,000 positions filled by underqualified educators. In many states, the challenges
of the COVID-19 pandemic exacerbated educator attrition, leading states to examine not only how to fill vacancies, but also
how to strengthen and diversify the shrinking educator pipeline.
Arizona is not immune to these challenges. As of September 2022, 68 percent of teaching positions in the state were either
left vacant a few weeks into the school year or filled by individuals not meeting the standard teacher requirements. The state
has also struggled with one of the highest turnover rates in the country, leaving less experienced educators in the classroom
over time. Concerns over educator salary, working conditions, and field attractiveness contribute to these high attrition rates;
Arizona ranks second to last for wage competitiveness, making the profession less attractive to prospective educators, and
educators in the state have seen a decline in pay of six percent over the past decade (adjusted for inflation).
Retaining, and by extension, recruiting, a high-quality educator workforce is pivotal for enhancing the well-being of Arizona’s
citizens. Evidence supports the truth that highly effective educators can alter the trajectory of a child’s future:
• When evaluating the most influential factors related to student performance in reading and math assessments,
teachers were found to have a two to three times greater influence than any other aspect of schooling, including
services, facilities, and school leadership.
• Students assigned to highly effective teachers are more likely to pursue higher education, earn higher salaries, and
less likely to experience early parenthood.
• Students who benefit from teachers focused on improving behavior and other hirable skills display increased rates
of high school graduation, SAT participation, and intentions of college attendance.
To address the educator retention crisis in the state, Governor Katie Hobbs issued an Executive Order to create the
Governor’s Educator Retention Task Force (the Task Force) to:
• Develop a report on or before December 1, 2023, that identified recommendations for improving educator
retention in Arizona, incorporating feedback from a representative and diverse range of stakeholders and Arizona
citizens.
o Discuss educator retention rates in Arizona,
o Review educator pay and benefits from across the United States,
o Analyze findings from the Arizona Educator Retention Survey,
o Review effective retention practices focused on including educators of color, high-need schools, and
subject areas,
o Review educator and classified staff certification requirements, the effectiveness of alternative pathways,
and their impact on teacher retention, and
o Analyze educator preparation programs in the state including the Arizona Teachers Academy and Arizona
Teacher Residency program.
The Task Force was comprised of 19 members from across the state, including educators, administrators, educational
support professionals, and school board members; a list of the Task Force members can be found in Appendix A.
. Their work included:
• Dividing into four working groups around Pay and Compensation, Working Conditions, Retention Innovations, and
Teacher Preparation and Certification to examine the landscape in Arizona and learn best practices and successful
strategies from experts.
• Meeting as a full Task Force to review the results of the 2023 Educator Working Conditions Study conducted by the
Morrison Institute for Public Policy at Arizona State University and to create recommendations to strengthen
educator retention in Arizona (see The Governor’s Educator Retention Task Force Recommendations).
DECEMBER 2023
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THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
Research and Analysis
The research and analysis included in this report served to inform the work of the Task Force and provides additional context
and support for the recommendations ultimately put forward.
The Educator Workforce in Arizona
RETENTION
Arizona has struggled with teacher retention historically. Ten years ago, Arizona had the highest teacher attrition rate in the
country at 24 percent and in 2018, 12 percent of educators planned to leave the profession.
In the 2021-2022 school year, 58 percent of Arizona schools struggled or failed to fill teacher vacancies on campus compared
to 47 percent of schools nationwide. As of 2023, Arizona continues to have one of the highest rates of educators planning to
leave the profession at 13 percent, compared to 8 percent nationally.
Source
EXPERIENCE
Studies show that teacher effectiveness continues to
steadily increase until the 12
th
year of teaching when
returns begin to level off, with the largest gains in
student achievement occurring during a teacher’s first
five years in the classroom. In Arizona, the majority of
educators are within their first four years of
experience and the steep drop off for teachers with
five to nine years of experience suggests a high rate of
attrition in the early years of the profession. While
most new educators enter the profession in their 20s,
Arizona has a steady stream of new educators
entering the profession into their 50s and 60s.
As teachers leave the profession, schools have
struggled to find qualified educators for classroom
vacancies. During the 2019-2020 school year, 3,115
teaching positions were filled by international
teachers, emergency certified teachers, emergency
substitutes, and long-term substitutes, impacting an
estimated
five percent of active classrooms. The
11.9%
12.0%
13.1%
6.6%
7.3%
8.6%
2016 2018 2023
PERCENT OF EDUCATORS PLANNING TO LEAVE THE
PROFESSION
Arizona United States
33%
22%
27%
15%
4%
ARIZONA TEACHERS BY YEARS OF
EXPERIENCE | 2022- 2023
4 Years or Less 5-9 Years 10-19 Years
20-29 Years 30 Years or More
Source
DECEMBER 2023
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THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
Research and Analysis
classrooms most likely to be impacted are in Title I-eligible schools and those students are more likely to have a teacher that
is less experienced and teaching with an emergency credential or out of their field.
Source
SHORTAGE AREAS
As Arizona struggles to ensure that all students have access to a high-quality educator, there are specific subject areas that
are more affected than others. The areas identified as shortages in Arizona for 2023-2024 are:
Subject Matter
Discipline
Grades
English as a Second Language Bilingual Education Pre-K - 12
Language Arts English 6 - 8
Mathematics Basic and Advanced Mathematics 6 - 8
Science General Science 6 - 12
Special Education Cross Categorical Pre-K - 12
Special Education General Curriculum Pre-K - 12
Special Education Early Childhood Pre-K - 3
Special Education Severely and Profoundly Handicapped Pre-K - 12
Special Education Emotional Disabilities Pre-K - 12
Special Education Cognitive Disabilities Pre-K - 12
Special Education
Challenges recruiting and retaining special education educators is a national concern; in the 2021-2022 school year, 45
percent of schools reported a vacancy in special education, making this the highest area of need for educators nationally.
Two major contributing factors are the wide range of disciplines within the subject area that spread certified educators thin
and the legal requirements that prohibit states from waiving certification or license requirements for special education
teachers and related services personnel on an emergency, temporary, or provisional basis. In Arizona, finding special
education teachers is a long-term challenge.
Science, Technology, Engineering, and Math (STEM)
Historical barriers to hiring STEM teachers have included location, respect for the teaching profession, attractive alternative
STEM career opportunities, and declining interests among students in pursuing teaching careers. These shortages
disproportionately impact low-income schools, students of color, and those in urban and rural school settings. Nationally,
79.8%
20.3%
88.5%
1.5%
10.0%
81.7%
18.3%
94.1%
0.4%
5.6%
EXPERIENCED INEXPERIENCED APPROPRIATELY
CERTIFIED
EMERGENCY
CREDENTIALS
OUT OF FIELD
EDUCATOR QUALIFICATION BY SCHOOL TYPE | 2021-2022
Title I Schools Non-Title I Schools
DECEMBER 2023
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THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
Research and Analysis
over half of public school districts and more than 90 percent of districts serving large populations of Black and Hispanic
students reported significant challenges in recruiting and retaining STEM educators.
Rural Communities
In addition to specific subject areas, rural communities also disproportionately encounter challenges recruiting teachers;
research indicates low-income rural public schools experience a 28 percent higher attrition rate than low-income urban
districts. One contributing factor is that while rural areas tend to have lower living costs, teacher salaries remain less
competitive in rural areas compared to other regions. High transportation costs and limited housing options further
exacerbate this problem.
DIVERSITY
Extensive research has found that a diverse educator workforce is beneficial to all students, but especially students of color.
When students are taught by an educator who reflects their racial identity, their test scores improve in both math and
reading in early grades, and they are less likely to face exclusionary discipline practices and more likely to attain a
postsecondary credential or degree. Despite this evidence, the teaching profession in the United States is characterized by its
white and female composition, a trend that has persisted over the past three decades. In fact, the percentage of female
teachers has grown during this time and while the profession has become more racially and ethnically diverse overall, the
percentage of Black teachers has decreased. This pattern is mirrored in Arizona; as of the 2022-2023 school year, 76 percent
of Arizona classroom teachers are female and 73 percent are white.
The barriers to entering the education workforce begin
when individuals of color are in school themselves:
• During their formative years, students of color
are more likely
to be enrolled in schools where
most of their peers are also students of color
and/or from low-income backgrounds. These
schools typically suffer from inadequate
funding, fewer qualified teachers, and limited
educational resources, which
diminishes the
likelihood of students matriculating to college.
• Students of color experience lower enrollment
and graduation rates from postsecondary
institutions, making recruitment of educators
of color more challenging.
• Educators of color, particularly Black
educators, are more likely
to have financed
their college education through student loans,
causing them to carry more debt. Therefore,
students of color and low-income students,
who often lack generational wealth or may be
supporting additional family members, take on
additional risks when attending college, likely
leading them to pursue more financially
lucrative careers.
Source 1, Source 2
Then, once educators of color enter classrooms, professional challenges make it more difficult for them to stay than for their
white peers:
• Studies have shown that educators of color report higher levels of discrimination, microaggressions, and other
forms of racism while on the job relative to their white counterparts. One study found educators of color working in
predominately white schools receive lower evaluation scores, which may lead educators to leave their schools for
other opportunities.
34.9%
73.0%
4.2%
2.0%
3.5%
4.2%
5.7%
3.8%
47.6%
16.7%
4.2%
0.3%
STUDENTS TEACHERS
STUDENT VS. TEACHER DIVERSITY IN
ARIZONA | 2022- 2023
Two or More
Hispanic
Black
Asian/
Pacific Islander
American Indian/
Alaska Native
White
DECEMBER 2023
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THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
Research and Analysis
• Educators of color often face an “invisible tax,” a term describing the expectation that they will take on additional
duties related to their racial or ethnic identities. For example, teachers who speak more than one language may be
asked to perform additional duties, such as document translation or facilitating communication with families who do
not speak English, often without receiving additional compensation.
• Black male educators report spending a significant amount of time mentoring and counseling and are tasked with
disciplinary roles for students of color in their schools. Research indicates that the time dedicated to these
responsibilities can put Black teachers who aspire to principal or superintendent positions at a disadvantage
because they have not had instructional leadership opportunities.
Educator Compensation
The average starting pay for teachers in Arizona is $41,496, ranking 27th nationally. The average salary for all classroom
educators in the state is $56,775, which ranks 32nd nationally, indicating issues with wage compression.
Despite Arizona’s mid-ranking teacher salary, the minimum living wage for Arizona is $52,528, designating beginning
educators as low-income earners despite requiring fully certified educators to hold Bachelor’s degrees. Arizona is the 50th
state in wage competitiveness, meaning educators earn the lowest compared to other college graduates, and relative to
other college-educated professionals, Arizona teachers earn 32 percent less annually. In fact, the top paid teacher with a
bachelor’s degree in Arizona makes $52,130, which is still less than the minimum living wage for the state; regardless of level
of experience, a teacher with a bachelor’s degree in Arizona with one child cannot afford the basic standard of living.
Source
$52,528
$41,496
$56,775
$66,745
ARIZONA MINIMUM
LIVING WAGE
STARTING TEACHER
SALARY IN ARIZONA
AVERAGE TEACHER
SALARY IN ARIZONA
NATIONAL AVERAGE
TEACHER SALARY
COMPARISON OF ARIZONA TEACHER SALARIES | 2023
DECEMBER 2023
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THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
Research and Analysis
EDUCATOR COMPENSATION ACROSS THE UNITED STATES
Compared regionally, the average teacher salary in Arizona is lower than all neighboring states, apart from New Mexico (not
weighted or adjusted for cost of living).
Source
On average, teachers experience a pay penalty relative to other college graduates; in Arizona, public school teachers earn 33
percent less on average than non-teacher college graduates in the state. Criticisms that teachers only work a nine-month
contract per year and, therefore, their salaries cannot be compared to other professions have largely been invalidated.
Teachers spend at least some of their time during summer breaks preparing for the next school year, engaging in
professional development, and participating in other activities related to their role. This work is generally uncompensated
and, in some cases, involves a required cost. To combat challenges related to the wage gap, many teachers take on second
jobs throughout the school year; teachers are about 30 percent more likely to work a second job than non-teachers.
The variation in compensation across the country is explained by the different approaches to teacher compensation across
states and districts.
Governance of Educator Compensation
Number of States
Set teacher salaries at the state level 17
Set a minimum teacher salary at the state level, but allow LEAs to make additional
determinations around compensation
9
Leave decisions around compensation to LEAs 29
Source 1, Source 2
Common criteria for determining teacher pay include qualification, years of experience, and performance. Some states and
districts also offer additional financial incentives to attract teachers to schools or subject areas which are hard to staff.
Qualifications
All states with salary scales include compensation for various levels of certification or education to incentivize educators to
continue professional learning and ultimately maximize their impact on students. While there is some variation in the
DECEMBER 2023
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THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
Research and Analysis
amount of compensation provided for each, common qualifications for salary increase include possession of a teaching
license or certificate, graduate level degrees, and certification from the National Board for Professional Teaching Standards.
Experience
Currently, all 17 states implementing teacher salary schedules determine pay based on number of years teaching, a practice
aimed at retaining teachers over the course of their career. The number of years required for maximum compensation varies
from six years in Hawai’i to thirty-five years in Mississippi, North Carolina, and West Virginia.
Five states (California, Indiana, Kentucky, Louisiana, and North Carolina) also grant extra pay for relevant prior experience
from other industries to attract professionals with comparable education to the profession. These states permit
administrator autonomy to determine relevant experience. Seven additional states offer pay for prior experience, but only in
specified industries; for example, Hawai’i limits prior experience pay to candidates with military experience.
Performance
Pay based on performance, sometimes referred to as “merit-based pay” or a “value-add model,” is required by 11 states and
allowed by an additional 13 states. How performance is evaluated varies between states and districts; some educators
receive compensation based on student achievement on state standardized tests or AP testing, while others receive
compensation based on district-level rubrics that consider student achievement, teacher observations, campus leadership,
and parent or student surveys. The most effective performance-pay programs include professional development and offer
competitive incentives for educators.
Texas is one of the current leaders for performance-based pay. In 2019, the Texas Legislature passed House Bill 3, an
education funding bill that included the Teacher Incentive Allotment (TIA). The TIA provides between $3,000 and $32,000 per
year to identify teachers based on performance and other characteristics, such as high-need areas, rural district campuses,
and student population characteristics. Texas districts are required to report the use of these funds and salary increases to
the state education agency for accountability.
Research on performance-based pay does not support the idea that individual teachers improve based on performance
incentives. However, performance pay may increase the overall quality of the teacher workforce by recruiting and retaining
highly effective teachers; studies have found that while attrition increased during initial implementation of performance-
based pay initiatives, lower-performing educators were the most likely to leave. Research has revealed possible disparities in
the implementation of performance-based pay policies, noting that white teachers received higher ratings on average on
their evaluations than their Black and Hispanic colleagues.
Differentiated Pay Incentives
One of the most popular approaches to teacher pay is strategic pay for hard-to-staff schools or subject areas, with 39 states
currently implementing monetary incentives to attract teachers to strategic positions. Additionally, 18 of those 39 states
offer loan forgiveness as well. Recent research in Washington State found that bonus pay to teachers in high-poverty schools
improved hiring and reduced attrition in schools eligible for the bonus. Other states offering differentiated pay incentives
include:
• Utah school districts offer up to $7,000 annually to effective teachers in high poverty schools for both general and
special education teachers in K-8 classrooms. The bonus is funded equally by the state board of education and the
school district.
• Special education and math teachers receive differentiated pay in West Virginia by receiving three years of
additional experience on the state’s salary schedule. The state also offers loan assistance to teachers who teach in
critical need subjects or schools in critical need locations.
• Teachers in Connecticut who teach in districts identified as “priority” or “transitional” or who teach in subject-
specific shortage areas may be eligible for mortgage assistance through below-market-rate loans or down payment
assistance.
DECEMBER 2023
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THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
Research and Analysis
Entering the Education Workforce
EDUCATOR PREPARATION PROGRAMS IN ARIZONA
As of 2022, Arizona had 283 educator preparation programs (EPPs) across 30 institutions. These programs include:
• Traditional educator preparation
programs are housed in institutions of
higher education (IHEs) and lead to
candidates receiving their licensure at
the end of their four-year degree
process. The largest traditional EPPs
in Arizona are run through Arizona
State University, Grand Canyon
University, Northern Arizona
University, and University of Arizona.
In 2021, traditional EPPs made up
91
percent of future teachers
completing preparation programs.
• Alternative routes allow individuals
who already hold a bachelor’s degree
to transition from careers in other
fields to teaching through an
accelerated process. The largest four
alternative programs are Teachers of
Tomorrow, Teach-Now, Klassroom,
and ABCTE. Alternative EPPs graduated eight percent of
total program completers in 2021.
• Classroom-based preparation programs allow individuals who already hold a bachelor’s degree to enroll in a State-
Board-approved EPP and complete the program requirements for certification while being employed as a full-time
Arizona teacher with an Alternative Teaching Certificate. These programs accounted for the remaining one percent
of total program completers in 2021.
Enrollment in EPPs has declined across the country, a pattern that is also seen in Arizona. However, program completion has
risen at the Mary Lou Fulton Teachers College at Arizona State University. In 2022, 75 percent of students who received
institutional recommendations at Arizona State University entered the classroom, compared to 26 percent at the next largest
enroller, Grand Canyon University.
Source
52,869
50,129
48,340
43,215
30,090
30,301
39,685
41,910
35,919
38,262
37,763
6,582
7,044
6,089
5,651
5,499
4,966
4,873
5,344
5,547
5,908
7,646
2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022
TOTAL EPP ENROLLMENT AND COMPLETION IN ARIZONA
Enrolled Completed
55%
26%
18%
ARIZONA EDUCATOR PREPARATION
PROGRAMS BY TYPE | 2022
Traditional EPPs
Alternative Entry
Class-Based Preparation Programs (CBPPs)
Source
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THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
Research and Analysis
Effectiveness of Preparation Pathways
Research shows that teachers who enter the classroom through high-quality teacher preparation programs are more likely to
stay in the classroom.
While most research finds little difference in teacher effectiveness based on whether a teacher
completes a traditional or alternative program, alternative entry educators are more likely to transfer schools or leave the
profession in their first year than traditionally prepared teachers. Evidence suggests increased organizational supports for
new educators may reduce this effect. In Arizona, Teachers of Tomorrow has the largest enrollment of the current
alternative entry pathways - 46 percent of program participants are people of color and 70 percent of teachers prepared
through the program remain in the profession after five years.
Traditional and alternative entry educators are similar in demographic and affective characteristics, but they have different
background experiences and ideas about teaching. Alternative entry educators are also more likely to teach in high need
schools.
Classroom-Based Preparation Programs are run by school officials with direct connection to campus needs, which
differentiates this path from other methods of alternative entry. Further research is required to determine the effectiveness
of classroom-based preparation programs.
Arizona Teachers Academy
The Arizona Teachers Academy (ATA) is a program which helps students enrolled in a state university or community college
that provide a post-baccalaureate EPP pay for related tuition and fees by offering scholarships in exchange for the
commitment to teach for each year of funding the student receives. For many, this means a four-year commitment to teach
in Arizona public schools after graduation. Requirements for the program include completion of the Free Application for
Federal Student Aid (FAFSA) and admission to a partner program that leads to initial certification. ATA partners with the
following institutions: Arizona State University, Northern Arizona University, University of Arizona, Maricopa Community
College, Pima Community College, Rio Salado College, and Scottsdale Community College.
Enrollment in the ATA has steadily increased over time and participating students show a high rate of persistence:
NUMBER OF TEACHERS WHO COMPLETED AN ACADEMY PROGRAM OF STUDY
2020-2021
2021-2022
2022-2023
Arizona State University
116 406 380 491 402
Northern Arizona
University
26 265 305 361 334
University of Arizona
28 91 142 132 124
Maricopa Community
Colleges
44 105 115 82
Pima Community
College
5 24 46 52
TOTAL
956
1,145
994
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Research and Analysis
PERCENTAGE OF STUDENTS WHO COMPLETED EACH YEAR OF THE ACADEMY AND PLAN TO CONTINUE TO THE
SUBSEQUENT YEAR
2020-2021
2021-2022
2022-2023
Arizona State University
94% 100% 100% 100% 100%
Northern Arizona
University
96% 99% 90% 90% 91%
University of Arizona
N/A 100% 100% 99% 95%
Maricopa Community
Colleges
90% 100% 81% 96%
Pima Community
College
95% 92% 92% 99%
In 2023, the ATA utilized $26.2 million in funds from the General Fund appropriations and the Governor’s Office to support
students enrolled in the program, educator induction support, testing and certifications, National Board Certifications, and
program administration.
Arizona Teacher Residency
The Arizona Teacher Residency program (AZTR) takes a clinical apprenticeship approach to preparing educators over the
course of a two-year program in order to address the common challenges faced by prospective teachers in traditional EPPs
who struggle managing full-time classes, student teaching, and paid work at the same time. While working towards their
master’s degree from Northern Arizona University, residents are paired with a mentor teacher before becoming the teacher
of record for their second year. The program requires a commitment to teach for at least four years to ensure no debt is
accrued and in their fourth year in the classroom, residents are encouraged to prepare for National Board certification.
Model of Arizona Teacher Residency Program
Year 1
Year 2
Year 3
Year 4
Teacher Apprenticeship Teacher of Record
Paired with Supervising
Teacher
Induction Support
National Board Pre-
Candidacy Encouraged
Arizona Teacher Residency Residents Continued Commitment at Partnering District
Source
AZTR began its first cohort of 22 residents in the summer of 2022 with plans for graduation by 2024. While the first cohort of
AZTR has yet to graduate, the program partners with National Center for Teacher Residencies (NCTR), which has
demonstrated impacts on teacher retention and diversity. Of teachers who graduated from a NCTR program, 85 percent are
still teaching and 58 percent of residents identify as people of color. Furthermore, 93 percent of principals report NCTR
residents are more prepared to teach compared with other first year teachers.
Diversity of Educator Preparation Programs
In Arizona, alternative preparation programs outside of institutions of higher education are supporting higher rates of
program completion for future educators of color. This is likely due to the nature of programs like classroom-based
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preparation programs, including the Arizona Teacher Residency program, which allow prospective teachers to earn a living
while gaining experience and pursuing certification.
Source
Certification
Arizona offers a range of options for educator certification. Becoming a certified full-time teacher of record in Arizona
requires a bachelor’s degree from an accredited institution.
Upon program completion, candidates are required to pass all Arizona Educator Proficiency Assessments for the desired
certificate. Candidates may then receive an institutional recommendation from their preparation program and apply for
certification from the Arizona Department of Education.
Arizona offers the following certificates for professionals interested in becoming classroom educators:
Certificate Type
Valid For
Specifications
Arizona Standard
Professional Certificate
12 years (renewable) Discipline areas include:
• Early Childhood Education, Birth – Age 8
• Elementary Education, K – 8
• Middle Grades Education, 5 – 9
• Secondary Education, 6 – 12
• Elective Certifications: Art, Dance, Music, Theater,
Physical Education, Athletic Coaching
• Special Education: Mild/Moderate Disabilities, K-12;
Moderate/Severe Disabilities, K-12; Visually or
Hearing-Impaired Special Education, Birth-Grade 12
Career and Technical
Education (CTE), K-12
Certificates
12 years (renewable)
• Candidates qualify for this certification under five
options which include a range of work experience, a
bachelor’s degree, teacher certification in another
area, or satisfactory teaching evaluations.
• Discipline Areas include:
o Agriculture
42% 42%
47%
42%
37%
42%
31%
76%
67%
64%
2020 2021 2022
PERCENT OF COMPLETERS OF COLOR BY EPP TYPE IN ARIZONA
Traditional Alternative,
IHE-Based
Alternative,
not IHE-Based
Percent of K-12 Students of Color
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THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
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o Business and Marketing
o Education and Training
o Family and Consumer Sciences
o Health Careers, and
o Industrial and Emerging Technologies
Subject Matter Expert
Certification
12 years (renewable)
• Authorizes the holder to teach the approved area
indicated on the certificate in grades 6-12.
• Educators may gain an SME Certification if they
have postsecondary teaching experience, a degree
in the subject area, or certifiable work experience
of five years that is comparable to a degree in the
subject.
Alternative Teaching
(Teaching Intern/Teacher in
Residence) Certificate
2 years Holder may enter a teaching contract while completing
requirements for an Arizona Standard Professional teaching
certificate.
Emergency Certificate 1 year
• The certificate must not be issued more than three
times to the same individual.
• To request this certificate, a district or charter
school superintendent must:
o Verify the teaching position has been
advertised in at least three statewide
career placement offices, and
o Ensure the Teaching Intern Certificate
pathway is either unavailable or
insufficient to address immediate
employment needs.
International Teaching
(Foreign Teaching / Teacher
Exchange) Certificate
Valid for the length of the
visa, not to exceed 12 years
Issued to teachers from other countries who are hired
through a teacher exchange program and are authorized to
work in the United States under a visa.
Substitute (PreK-12)
Certificate
6 years (renewable)
Permits the holder to substitute for a temporary absence of
a regular contract teacher.
Junior Reserve Officer
Training Corps (JROTC)
Certificate
12 years (renewable) Applicants must verify:
• That the district or charter school has an approved
Junior Reserve Officer Training Corps program of
instruction, and
• That the applicant meets the work experience
required by the respective military service.
Native American Language
(PreK-12)
12 years (renewable) Applicants must submit a letter (on official letterhead)
verifying proficiency in a Native American Language signed
by a person, persons, or entity designated by the
appropriate tribe.
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Research and Analysis
Adult Education Certificate 12 years (renewable) Discipline Areas include:
• Adult Basic Education
• Adult Secondary Education
• English Language Acquisition for Adults
• Citizenship
Arizona also offers four professional non-teaching certificates:
Certificate Type
Valid For
Specifications
School Counselor 12 years (renewable) Candidates are required to complete one of four options:
• A graduate program in guidance or counseling
• A graduate program in counseling, social work, or
psychology
• A behavioral health license, or
• An academic advising program.
School Psychologist 12 years (renewable)
• Professionals with this certificate are primarily
responsible for student psychoeducational
assessment, therapeutic consultation and
intervention, and support for determining student
disabilities or disorders.
• Candidates are required to have a master’s degree
and one of the following:
o Completion of a graduate program
o Completion of a doctoral program
o At leave five years of experience in a
school setting serving K-12 students
o National certification: Nationally Certified
School Psychologist (NCSP) credential
o American Board Diploma
• Candidates are also required to complete a
supervised internship of 1,200 hours or three
years of experience as a certified school
psychologist.
School Social Worker 12 years (renewable) Candidates are required to have:
• A master’s degree, and
• A practicum of at least six semester hours through
an accredited institution or one year of verifiable
experience.
Speech-Language
Pathologist
12 years (renewable)
Candidates are required to have:
• A Speech Pathology license from the Arizona
Department of Health Services,
• A master’s degree,
•
250 clinical hours, and
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THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
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• A passing score on a relevant exam or membership
in the American Speech-Language-Hearing
Association (ASHA).
Retention Practices: Keeping Teachers and Creating Careers
COMPENSATING EDUCATORS
The teacher pay penalty is a significant factor for both recruitment and retention in the education field. In 2022, a national
survey found that 62 percent of all parent respondents would not want their children to become teachers due to poor pay
and poor benefits and during the COVID-19 pandemic, the top reason cited for educators leaving the classroom was
inadequate pay relative to the risk or stress of the job. Between the 2022 and 2023 legislative sessions, Utah, New Mexico,
Arkansas, Mississippi, and Alabama passed legislation to increase teacher pay.
• New Mexico, in 2022, committed to raising teacher salaries by 20 percent for the following school year, raising the
starting salary from $40,000 to $50,000.
• Idaho also raised teacher salaries in 2022 by approximately three percent, making the average teacher salary
$54,806 this year. The state combined this with expanding career ladder models to increase teacher potential
earnings over their career as well.
Evidence shows that improving teacher pay schedules or offering increased compensation through bonuses does impact
teacher retention rates:
• Florida found a 25 percent increase in retention for middle and high school educators in specific subjects who
received a $1,200 bonus for earning satisfactory performance ratings.
• California implemented a starting salary increase of $4,400 ($7,900 adjusted for inflation) which reduced the
probability of a new elementary teacher leaving public school employment by
17 percent for teachers with multiple
subject certifications and 9 percent for teachers with single subject certifications.
It is important to note that there are mixed results across types of pay related to retention. While one-time bonuses offered
no significant impact on teacher retention in Tennessee in 2018, changes to teacher pay schedules and differentiated
incentives based on high-need areas demonstrate a promising investment.
MONITORING TEACHER RETENTION AND RECRUITMENT
As states struggle with educator retention, many turn to data collection to identify the root causes of attrition:
• Forty states and the District of Columbia published teacher shortage data in the last five years.
• Thirty-eight states and the District of Columbia released data on the educator equity gap since originally submitting
their ESSA plans.
• Twenty-seven states and the District of Columbia have conducted teacher working condition surveys in the past five
years.
An additional data point to be considered for inclusion in the existing survey collection is school climate tracking. Climate
data can be tracked in conjunction with working condition data to evaluate the effectiveness of interventions on educator
satisfaction, efficacy, and retention.
One example of accessible data on teacher recruitment and retention is Illinois’ interactive Educator Supply and Demand
Report, presented as a dashboard on their board of education website. The report allows state and local leaders to examine
teacher retention by school or district, experience level, race, and gender to make strategic decisions regarding recruitment
and retention that are responsive to local needs and track the effectiveness of these decisions over time.
Arizona collects some data on teacher supply and demand in the state, such as reasons teachers are leaving at the school
level, through the login-required Teacher Input Application. Public data around the Arizona educator workforce includes:
• Teacher shortage data
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o The 2020 Arizona Teacher Workforce
o Arizona School Personnel Administrators Association Teacher Shortage Survey
• Educator experience and qualifications
o Arizona School Report Cards – Teacher Qualifications
MENTORING AND INDUCTION
One of the most common practices for addressing teacher retention on the state level includes the requirement of induction
and mentoring support for new teachers in hopes of increasing beginning teacher retention. Educators who are poorly
supported or underprepared are more likely to experience attrition in their initial years of teaching and, in fact, between 30
and 50 percent of educators leave the profession within their first five years. Research shows that induction or mentoring
programs had positive impacts on teacher retention and commitment, classroom instructional practices, and student
achievement. In New York and Ohio, early induction programs have demonstrated high levels of effectiveness in urban
districts, reducing attrition by up to 66 percent.
Thirty-one states implement an induction or mentorship model; however, only three states (Connecticut, Delaware, and
Iowa) meet most of the criteria for high-quality programming:
• Time requirements: High quality induction/mentorship programs have specified program length requirements. Most
programs require one year of mentorship for new teachers. Research suggests that a comprehensive two-year
program does not demonstrate a positive impact on student achievement until the educator’s
third year.
• Consistency in program design and operation: To ensure teachers across the state receive access to quality
mentorship across the state, it is important for program operation to remain consistent across implementation.
• Teaching standards: States with high-quality mentorship programs have clear expectations for successful teachers.
Often these standards are developed by state boards of education or educator licensure programs.
• Mentor selection and training criteria: Criteria for mentor selection may include minimum experience requirements,
demonstrated classroom effectiveness, and leadership qualities. Some programs also require the mentor to teach
the same content or grade level as their mentee. Training for mentors is also significant for consistent program
implementation because it creates consistency across mentee evaluation and supports effective communication of
feedback.
State
Mentorship/Induction Program Features
Link
Connecticut The Teacher Education and Mentoring Program (TEAM) in Connecticut
requires entering teachers to participate in a two-year mentoring
program model. Mentors are trained through an approved training
program to ensure quality support for beginning educators. TEAM also
provides protected time for mentors and mentees to meet for an
equivalent of four school days throughout the year.
Teacher Education and
Mentoring Program
(TEAM)
Delaware Delaware implements Comprehensive Teacher Induction programs with
four-year support requirements for beginning educators. Mentors are
required to possess an advanced or continuing license, participate in
training, and earn satisfactory evaluations. Delaware does not alter
workloads for mentors or mentees while they participate in the
induction program.
Comprehensive Teacher
Induction Program
Iowa In 2018, Iowa implemented the Mentoring and Induction Program for
Beginning Teachers. The program requires a two-year commitment and
offers mentors and mentees “released” time to plan. Mentor
requirements include valid licensure for employed or retired teachers,
Mentoring and Induction
Program for Beginning
Teachers
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four years of high performance, and employed on a non-probationary
basis. Mentors are selected and trained by the district.
Arizona does not have a state level induction program; however, the Arizona K12 Center offers the Arizona New Teacher
Induction Network as an optional program for beginning teachers. The network meets three to four times per year and offers
teacher support through a Mentor Institute and Mentor Forum, as well as targeted learning opportunities.
NATIONAL BOARD CERTIFICATION
National Board Certification is a voluntary teacher competency evaluation process, developed and administered by and for
teachers. Board certification involves a one to three-year process in which candidates demonstrate evidence of accomplished
practice through:
• Content knowledge. Candidates must display knowledge of content and pedagogical practices for teaching in their
content area.
• Differentiation in instruction. Candidates must gather and analyze information about individual students’ strengths
and needs and use that information to design and implement instruction to advance student learning and
achievement.
• Teaching practice and learning environment. Candidates must submit video recordings displaying their interactions
with students and written commentary describing those interactions.
• Effective and reflective practitioner. Candidates must demonstrate evidence of ability as effective in developing and
applying the knowledge of their students.
Research over the past decade suggests that National Board-Certified teachers positively impact student achievement and
aid in teacher retention:
• Research examining teacher turnover in South Carolina found that from the 2014-15 to 2018-19 school years,
turnover rates for Board-Certified Teachers were less than half of the statewide average.
• States and districts across the country have evaluated the impact of Board-Certified teachers and concluded that
they do have an impact on student outcomes. Students taught by Board-Certified teachers see an increase in
learning roughly equal to one to two months of additional instruction and 74 percent of students instructed by
Board-Certified teachers show evidence of deeper learning, compared to only 29 percent of students instructed by
non-Board-Certified teachers. This impact is even greater for low-income and other historically underserved student
populations.
• In California, Board-Certified teachers outperform other teachers with the same level of experience in elementary
math and English/language arts. Similar findings were also evident in Washington, Georgia, and Florida. The positive
effects of Board-Certified Teachers are especially pronounced for children who are eligible for free and reduced-
price lunch.
As of 2019, there are over 125,000 Board-certified teachers across the country. Arizona currently has 1,536 National Board
Certified Teachers and 826 candidates, some likely supported by the Arizona Teacher Academy. At least 27 states offer
financial incentives for National Board Certification and 22 states offer financial support for Board Certification fees. States
may also provide additional incentives for Board-Certified Teachers who are in high-needs schools and districts may also
choose to provide benefits to Board-certified Teachers in their schools to increase retention and remain competitive with
other school systems. The National Board also provides robust professional development for Board-Certified Teachers and
many states count certification towards state licensure, renewal, or step increase.
STUDENT LOAN FORGIVENESS
Research demonstrates that programs offering loan forgiveness and service scholarships effectively attract and retain high-
quality educators in high-need areas. As of the 2020-2021 school year, 47 percent of school districts still offered a starting
salary for educators below $40,000. In comparison, the total average cost of a public undergraduate tuition with board and
fees was $104,000 for the same year. One 2020 study found that 85 percent of educators said student loan debt prevented
them from accomplishing important life objectives such as saving money, purchasing a home, or starting a family.
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Student loan forgiveness has been found to be particularly effective in recruiting teachers of color. This may be because low-
income students and students of color are more likely to be enrolled in remedial courses, prolonging the time to graduation
and therefore increasing the cost of their education. Educators of color, particularly Black educators, are more likely to utilize
student loans to pay for college, causing them to carry more debt. Therefore, students of color or low-income students who
often lack generational wealth take on additional risks when attending college, likely leading them to pursue more financially
lucrative careers.
Arizona currently offers teacher loan forgiveness to students at public universities through the Arizona Teacher Academy.
Students attending private colleges can apply for the Arizona Teacher Student Loan Program, which also offers loan funding
for every year the student agrees to teach in an Arizona public school.
GROW YOUR OWN PROGRAMS
Grow Your Own (GYO) programs are a model of educator preparation that involve recruiting prospective educators from the
local community, such as non-education college graduates, paraprofessionals, community activists, and other key community
stakeholders, or by creating a pathway for middle and high school students to enter the education workforce. These
programs focus on returning educators to their local communities and therefore look different depending on local contexts.
GYO programs are often cited as a strategy to improve educator diversity. Additional research suggests GYO programs also
promote teacher retention over time.
Residencies and Apprenticeships
A form of GYO, teacher residencies provide teaching candidates with the opportunity to work alongside a mentor teacher for
at least one year before becoming the teacher of record, while teacher apprenticeships
combine coursework and on the job
experience to reduce the cost of earning a teaching degree while providing candidates with crucial time in the classroom
during their preparation.
Each teacher residency program is unique; however, high quality programs often have common characteristics such as:
• Strong local partnerships with universities and EPP programs,
• One year of clinical practice teaching with an expert mentor,
• Ongoing support and mentoring for program graduates,
• Financial support for residents in exchange for a time-based teaching commitment, and
• Recruitment of high-quality candidates for targeted district needs
Teacher residency programs often attract more diverse candidates. In 2022-2023, 69 percent
of National Center for Teacher
Residencies (NCTR) residents identified as people of color, compared to 21 percent of new teachers nationally. Residents are
also more likely to support high-need schools or subject areas, such as mathematics, science, students with special needs, or
English Language Learners. Despite teaching in schools with higher attrition rates on average, graduates of teacher residency
programs demonstrate higher levels of retention, between 80 to 90 percent within the first three years and 70 to 80 percent
after five years.
In January 2022, Tennessee launched the Teacher Occupation Apprenticeship and became the first state to establish a
teacher apprenticeship program approved by the U.S. Department of Labor. Being recognized as a Registered Apprenticeship
Program with the Department of Labor opens the Teacher Occupation Apprenticeship to federal funding opportunities,
allowing the program to leverage both state and federal dollars to create a sustainable funding stream.
Arizona currently offers classroom-based preparation programs and the Arizona Teacher Residency as a way for communities
to grow their own teachers. By partnering with higher education institutions, schools can hire a teacher full time while they
complete their residency requirements and work towards certification and a master’s degree. Other classroom-based
preparation programs allow candidates to teach with a supervising teacher while they complete the requirements for
certification as a pathway to becoming a teacher of record.
SCHOOL LEADERSHIP DEVELOPMENT
School leaders play a critical role in ensuring the success of students, teachers, and the entire school community. Their
responsibilities include setting the school’s vision and goals, creating a positive school culture, and managing resources
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THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
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effectively. As such, principal leadership also plays a significant role in teacher turnover; in fact, many teachers deem the
quality of administrative support as a more important factor in their decision to leave a school than salary. Particularly,
teachers point to the importance of school culture and collegial relationships, time for collaboration, and decision-making
input, which are all areas in which principals play a crucial role.
The presence of school leaders of color is a particularly significant factor in retaining teachers of color; by establishing
cooperative and supportive relationships with teachers of color, principals of color may reduce workplace stress, improve
communication channels, and motivate teachers to remain engaged in the work. This can also include an exploration of
leadership pipelines within schools for teachers to become administrators.
A high-quality school leader creating a positive culture and climate is someone who:
• Fosters a welcoming and inclusive environment that supports student academic and social-emotional growth.
• Prioritizes building relationships with students, families, and staff, and prioritizes open communication and
collaboration among all stakeholders.
• Promotes a culture of continuous improvement and are committed to ongoing professional development for
themselves and their staff.
INNOVATIVE SOLUTIONS TO RETENTION
Several organizations have developed models reimagining the working conditions of educators and ultimately the teaching
profession. While approaches to educator innovation differ, they all aim to improve teacher effectiveness, satisfaction, and
field growth in hopes of retaining and recruiting high-quality educators.
One innovative approach is the expansion of strategic staffing to build team-based staffing models. Rather than
implementing a one-teacher one-classroom model, team-based staffing shares student rosters between a team of staff
members to allow educators to support students with their individual areas of expertise and promote flexibility which allows
for dynamic student grouping and encourages creativity and innovation amongst team members. This model promotes
collaboration by design and holds all team members accountable for the shared roster of students as opposed to the
traditional model which attributes student success or failure to one individual teacher. This model also offers opportunities
for leadership while remaining in the classroom for more experienced educators through team leadership rather than
requiring educators to exit the classroom to further their career.
Opportunity Culture
• Opportunity Culture models redesign schools to reach more students with excellent teaching. Teachers with a
record of student growth lead teams with innovative teaching roles, paraprofessional support, and increased
tutoring time.
• In each Opportunity Culture school:
o The design and implementation team of teachers and administrators who determine how to use the Multi-
Classroom Leader (MCL) role and other advanced roles to reach more students with teachers who have
demonstrated high-growth student learning.
o A teacher in the MCL role leads a teaching team, providing guidance and frequent on-the-job coaching
while continuing to teach, often by leading small-group instruction.
o Teachers in the MCL role are accountable for the results of all students in the team and therefore earn
supplements averaging 20 percent (and up to 50 percent) of teacher pay, within the regular school budget.
o Schedules are redesigned to provide additional school-day time for teacher planning, coaching, and
collaboration.
Next Education Workforce
In order to build the Next Education Workforce, ASU’s Mary Lou Fulton Teachers College partners with schools and other
stakeholders to:
1. Provide all students with rigorous and personalized learning through building teams of educators with differentiated
experience, and
2. Empower educators by developing improved ways to enter the profession, specialize, and advance.
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THE GOVERNOR’S EDUCATOR RETENTION TASK FORCE
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The Next Education Workforce requires structured pathways to and through the profession to draw educators, improve
retention, and push for better learning outcomes. The model offers three main pathways:
1. Community Pathways offer accessible on-ramps to reward part-time or volunteer work in schools and other learning
environments.
2. Professional Pathways lead to teacher certification and to specializations that allow educators to improve their
practice.
3. Leadership Pathways lead to professional advancement for instructional, organizational, and systems leaders.
As of 2022, Mesa Public Schools in Arizona was the largest Next Education Workforce district partner.
Considerations for Gen-Z and Beyond
These innovative solutions also respond to the values of Generation-Z (Gen-Z), the term for young people born between
1996 and 2012, who currently comprise 19 percent of the workforce. Gen-Z is the most diverse generation yet, with the
majority identifying as people of color. According to human resource experts, their values include:
• Collaboration and Decision-Making Input: Gen-Z workers are interested in joining collaborative working
environments with a focus on communication and face to face interaction. This generation faced a significant
challenge with virtual learning during formative portions of their education and early workforce careers, leading to
connection-seeking behavior across the cohort. Gen-Z also values the ability to contribute frequently during
decision-making processes at work.
• Customizable Careers: Gen-Z is interested in customizable careers, rather than following a ladder or path laid out by
an organization. This likely reflects their value of diversity and commitment to leveraging individual strengths to
support a team.
• Devotion to Development and Coaching: Gen-Z professionals are interested in transformational professional
development and coaching opportunities. They are characterized by their commitment to feedback but push back
against more traditional workplace training. The youngest working generation also demonstrates a desire for
accountability within the workplace that is aligned to meaningful work within their chosen careers.
Conclusion
The research and analysis in this report is meant to help create an understanding of the current state of educator retention in
Arizona, including identifying areas of success and potential opportunities for strengthening policy and practice. From this
understanding, the Task Force developed the recommendations included in The Governor’s Educator Retention Task Force
Recommendations report to guide the Governor’s Office in supporting a high-quality educator workforce in Arizona that is
able to effectively provide all students with an opportunity for success.
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Appendix A
COMPENSATION & BENEFITS WORKING GROUP
• A parent of a child who currently attends a public school in Arizona: Jeremiah Gallegos | Financial Literacy
Instructor, Littleton School District
• An educator from a rural school: Luisa Arreola | Gifted Program Coordinator, San Luis Middle School
• An educator from a Tribal community: Lynette Stant | 3
rd
Grade Teacher, Salt River Indian Reservation, 2020 Arizona
Teacher of the Year
• A representative from a nonprofit organization focused on education policy: Marisol Garcia | President, Arizona
Education Association
• A school administrator from a school district in a Tribal community: Quincy Natay | Superintendent, Chinle Unified
School District
• A school board member: Ruth Ellen Elinski | Cottonwood-Oak Creek School District Governing Board
RETENTION INNOVATIONS & SOLUTIONS WORKING GROUP
• A human resource professional: Justin Wing | Assistant Superintendent of Human Resources, Mesa Public Schools
• An expert with significant experience in educator retention: Lloyd Hopkins | CEO/Founder, Million Dollar Teacher
Project
• A school administrator from a rural school district: Melissa Sadorf | Superintendent, Stanfield Elementary School
District
• An educator from an urban school: Violeta Ramos | Spanish Teacher and Governing Board Member, Osborn School
District
TEACHER PREPARATION & CERTIFICATION WORKING GROUP
• An education support professional: Curt Bertelsen | Director of Professional Development, Pima Joint Technical
Education District
• A representative from a community college: Dr. Jennifer Gresko | Faculty Chair of Educator Preparation Programs,
Rio Salado College
• Dean of a university college of education: Ramona Mellot | Dean, College of Education at Northern Arizona
University
• An educator from a Title 1 school: Zel (Zelatrice) Fowler | Gifted Education Teacher, Balsz School District
• A school mental health professional: Janine Menard | Tolleson Elementary School District
WORKING CONDITIONS WORKING GROUP
• An educator from a charter school: Jennifer Hulbert | 2
nd
Grade Teacher, Champion Schools-South Mountain
• A special education teacher or director: Jesus “Anthony” Lovio | Special Education Teacher | Flowing Wells Unified
School District
• A school administrator from an urban school district: Jonathan Parker |Principal, Sunnyslope High School
• An educator who recently left the profession: Sarah Tolar |City of Mesa’s Education and Workforce Administrator,
City of Mesa